To be fair to Tony (and Steve), the comics did a terrible job of the event from a practical standpoint imo.
For those unawares, it was passed as a federal law by Congress by the end of issue 1 of the series, so at that point what was there for Steve to do? Break out his arrested friends out of Tony's prison, maybe get Foggy to file grievances on behalf of the escaped/wanted fugitives that it wasn't a federally sanctioned maximum security prison? lol (unless it was federally sanctioned, i forget)... but really moot point b/c they'd still be right back to square one: escaped/wanted fugitives. Beating up Stark wasn't gonna solve that anymore than punching out Joe Biden would stop Obama Care.
i think they needed to have several ppl in congress and shield being outted as hydra in disguise and/or to have the whole school bus explosion be a cleverly crafted ploy by whatever villain to set it all in motion (to have all the heroes identities 'outed' for all villains to know, with Hydra plants already giving them orders). That way Steve would have had a logical out (prove the corruption, making the registration act null and void and having a valid point as ti why masks/secret identities are needed). It also would have given Tony Stark a way out too in that you could've had him genuine enough about the idea but just unawares that he was being played.
Then Spider-Man's involvement would've been even more impactful b/c the tactic would've worked in exposing his identity (and loved ones) to all his villains. Everything would've came full circle masterfully.. or at least that's how i would've done it.
