As stated before, being a nationalist superhero is to act as the state (protective) and the nation (representing the people). In the first volume of Captain America: Steve Rogers, Captain America presumably kills one of his old partners, Jack Flag. As Jack Flag is a superhero, this is perceived as an aggressive act, so Captain America is not playing his usual protector role. Being a member of Hydra, to most, also that he is siding with “evil people.” However, some people in America identify as white supremacists, whose ideals align with those of Hydra. Therefore, while Captain America is not acting as the usual state, he represents a portion of the nation and a somewhat nationalist superhero role, despite the fans rejection.
The Winter Soldier was meant to be a “political thriller” from its beginning. The overarching plot included Hydra being exposed for working inside of SHIELD, the “extra-governmental military counterterrorism and intelligence agency” that Cap began working with after he was unfrozen in the 21st century. For Captain America, this stood as a betrayal to everything he had known, due to SHIELD being essentially founded in his honor. A quote from the movie encapsulates Captain America’s character and commitment to liberty: “If you launch those helicarriers today, HYDRA will be able to kill anyone