Quote Originally Posted by CrimsonEchidna View Post
With Norman, there was at least an in-universe "progression" of him going from working with/leading the Thunderbolts before he got his official pardon and made the leader of SHIELD.

From people's perspective with Otto, his last known public action was trying to kill everyone in New York before seemingly "faking" his death.
Also, Otto technically could be sent back to prison as he was serving a lengthy sentence before the events of Superior Spider-Man. He could always state he died so his sentence is no longer in effect although I doubt anyone would buy that excuse. It sucks to be Otto right now lol.