On the other hand... Postulate that the Avengers all turn out to have appeared in China or Russia or something. Someone invades New York, as in the first movie. The Foreign Avengers want to come help, but General Ross insists that, no, his forces can handle it, he's not letting some foreign freaks muscle in on his turf, because he is an overconfident, arrogant buffoon; he predictably fails and dies, the bad guys finish their World Ruling Mcguffin and win.
(Or vise-versa with regular Avengers Moskow/Beijing invader with Russian/Chinese General Ross.)
If Foreign Avengers come to save the day, instead, General Ross has them arrested if he possibly can and tries to have political power brought on the Foreign Country (because dammit, saving the day was his job) - regardless of whether any accords exist or not.
(I mean, this, like, actually happened in Agents of SHIELD, where they went in to save a Russian general and who then did his damnest to get some of his rescuers executed because it suited his political purposes.)
Marvel universes are full of enough political and military frackwits of sufficient magnitude that I think that would be an actual possibility. They really ARE that freaking dumb, some of them.