The Avengers' transformation was an inevitable outcome.
This organization had been the product of coincidences from the very beginning. Even Nick Fury had never intended for the Avengers to last forever. Now that Tony Stark wanted to formalize the Avengers, every issue surrounding such a special response team needed to be brought before the Permanent Five for discussion, even without disputes over new energy. No one could feel at ease letting a group of self-directed individuals with formidable individual combat capabilities run around unchecked. Even Natasha Romanoff, who appeared to be the weakest fighter among them, made many people deeply wary. Her ability to disrupt administrative institutions far surpassed Tony Stark's ability to fly through the sky.
A team that could obey orders and possessed sufficient resources and professional expertise to counter extraterrestrial threats had become every nation's preferred choice. For reasons of cost-saving, political lobbying, and more, the Avengers became the first choice. Their transformation was therefore urgent. It would be best if the Avengers accepted the conditions. If they refused, they could only be disbanded—no organization on Earth could oppose a Permanent Five that had reached a consensus. At least, not yet. The political maneuvering behind bringing the Avengers under control was another matter entirely. Salomon could guess with his toes that if they accepted the agreement, the Avengers would never be able to leave Europe and the United States. Every country had seen what powerful individual combatants could accomplish without deploying large-scale armed forces. Not to mention the political clauses attached to the Avengers. Nations with independent sovereignty would rather refuse the Avengers' help than allow them to remain unrestricted.
Natasha Romanoff's response was to unite the Avengers.
She wavered between the City of Immortals and the Avengers, just as she would later waver during the Avengers'