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Most heroes were divided on the issue, and a Civil War ensued.
The Superhuman Registration Act had been a long time in the making.
The anti-registration camp seemed to be making headway, and may have even defeated the bill by the narrowest of margins, if not for the events that took place in Stamford, Connecticut. The Young Avengers, Cloak, and Dagger were some of these later heroes to join the group.
Villains Nitro, Cobalt Man, Speedfreak, and Coldheart had been holed up in a house in Stamford when the New Warriors located them. Yet, she had no right to do so, for the Act had not been passed yet, so Captain America was not yet a superhuman illegal combatant. Iron Man, on the other hand, felt that it was reasonable that heroes have proper training and oversight, that the casual self-policing the superhero community had enjoyed until now was insufficient, and (most importantly) that it was now impossible to resist this change in the political landscape.
Numerous members of the superhero community arrived on the scene to search for survivors. The inactive New Warriors were widely regarded as "baby killers" by association. He felt that heroes needed to be above direct government control, because when politicians could control the heroes, they could decide who the villains were. Even Stark unmasked himself as Iron Man (for the second time in his career), and admitted to previous attempts to hide his identity.
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The logical extension of the often-proposed, never-passed Mutant Registration Act, the Superhuman Registration Act arose following the devastating attack on Manhattan in reprisal for Nick Fury's "Secret War" Following M-Day, 90% of the Earth's mutant population found itself spontaneously depowered.
With the mutant population suddenly far less visible and extremist groups claiming the event marked a turn in the tide of growing mutantdom (if not divine punishment against all mutants), sympathy for the group was near an all-time low.