Now, I read Civil War when it originally came out, I've re-read it several times since then, and from everything I've seen in the main series and all the previews to it, one thing seemed abundantly clear: The SHRA was not like the Mutant Registration Act of the 90s, in that it only applied to superhumans who chose to use their powers, not just anyone who happened to have them. In fact, I remember that being specifically stated on several occasions, and I'm CERTAIN there were a couple of superheroes who just chose to stop using their powers when the SHRA was passed, rather than registering or breaking the law. (The Amazing Spider-Man Annual with Jackpot seemed to imply this wasn't the case, but I brushed that off since that issue was just a poorly written side-story written by someone who had no involvement with the actual Civil War crossover.)
But now I'm reading the Civil War/post-CW issues of New Avengers- written by Bendis himself- and my original interpretation of the SHRA doesn't seem to be the case at all! Luke Cage repeatedly argues that the SHRA makes people have to register just for being different, and at first I thought he was just plain wrong about how the law worked, but then Iron Man says that Jessica Jones would have to register, and when she says she doesn't use her powers or intend to, he says it doesn't matter. Later on, Iron Man confronts Danny Rand, who's claiming that he's not Iron Fist anymore (he's lying, but that's besides the point), and Iron Man tells him that even if he isn't putting on the costume he'll still have to register. So, what the hell's going on?!