What role could Baron Zemo have in all of this?

Over the course of years, Marvel Cinematic Universe’s HYDRA has dismissed any open confrontation with the superheroes (or with Captain America, for that matter, who is their biggest enemy). So they remain hidden, manipulating anyone opposing them and killing anyone who cannot be manipulated.
And this is where Baron Zemo comes into play (unless he has a small role, much like Baron Strucker in the events of Age of Ultron). He may be a mole in the council, he may even be one of those who initiates the marvel cinematic Universe’s version of the Registration Act. Eventually, he may be the one to force the superheroes to fight and potentially kill each other – which brings us to him orchestrating the death of a close friend of Tony Stark.
But this is just a speculation. What do you think? What could bring two superheroes in such a state that they could kill each other?
Of course, he could just have a mole inside each of the warring teams… And we have a pretty good idea who that is when talking about Captain America…
