It seems his intentions are genuine: he's trying to agree an international treaty on access to the new wonder material Adamantium found on Celestial Island and reaches out to Captain America (Anthony Mackie), who he once imprisoned, to reform the Avengers.
However following an assassination attempt Ross reverts to paranoid form leaving Cap to find out what's really going on.
This wants to be Captain America: The Winter Soldier, a high point for the MCU, so badly but isn't.
There's a conspiracy to uncover but now Cap can fly they HAVE to do extended aerial action scenes and it leans on that old dull chestnut of nobody listening to what anybody below them in the pecking order says to make there be a movie at all. This could have been an OK story about redemption and revenge but you can see the grab bag of MCU elements/cameos they agreed first and worked backwards from to get to.
Mackie and Ford are fine, I've always like the Sam Wilson character, but this feels like Marvel Television turned into a tentpole movie so all it gets is 5/10. Pedestrian as fuck. The first time I wrote this review I titled it "Captain America: New World Order" which either shows incipient dementia or how little impression it made on me.