I do wonder if they're setting him up for a Thunderbolts spin-off.
Yeah it seems like the obvious next step, but I don't see why Zemo would do it. He hates powered people, why would he lead them? Unless the govt tells him the gloves are off and he can kill anyone they're after, I don't see why he would work with them.
*shrugs* This is Hollywood, make up some manufactured bullshit that changes his mind.
