I'm not sure that the gov't would want to test Walker against a group of super-powered terrorists that they created. They would have a better use for their own serum, especially not giving it to subjects that they couldn't control.
They would more likely want to serve up a soft ball for him. Something that will get him an easy win.
But I agree that the gov't created the new serum and wanted to use it. Could be that Zemo stole it.
https://www.cbr.com/falcon-winter-so...t-mcu-moments/
Sam's best moments in the MCU.
Steve passing the shield to Sam is the best.
I'm wondering, is it normal for a legacy character to come from a totally different power set or character group?
What I mean is, in term of legacy characters, Iron Man has War Machine and Iron Heart, Captain America has US Agent and Patriot, Thor had Beta Ray Bill and Thunderstrike, and so forth. So I wonder why they decided to make Falcon the next Captain America.
I don't think it's the norm. I mean, Dick Grayson took over as Batman, he isn't as strong as Bruce, not nearly as smart or great as a detective. He's agile, known for having great team work and potentially a better leader than Bruce.
They're not the same in terms of physicals, intelligence or philosophies in many areas, etc.
I'm sure many of us can run through and name a lot more.
That's true. But Dick's basic concept is similar to Bruce's, i.e. guy with no powers and a lot of gadgets. Similarly, Captain America has characters like Patriot, US Agent and Winter Soldier, who all have different specific levels, but are generally peak humans with some kind of vibranium shield. Whereas Falcon flies and psychically communicates with birds.
Steve was never partners with patriot and USAgent. Sam was there with Steve when he took on HYDRA and Winter Soldier. And like I said earlier, it's not necessarily the powerset Steve was considering but the character of the person who he wants to represent Captain America.
Of the other characters you mentioned Thor didn't pass on his legacy to either Beta Ray or Thunderstrike. They got theirs from Odin and Heimdall respectively. Steve didn't choose Walker, that was the gov't and Patriot was following his own father and grandfather's legacy, not Steve's.