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Essentially, the Red Skull could possibly return in Captain America 4 to found the New World Order like his comic books counterpart. However, there’s no rule saying another villainous candidate couldn’t found the league of super-villains in Captain America 4.
Other intriguing potential candidates could be Baron Zemo (Daniel Brühl), Sharon Carter (Emily VanCamp), or even U.S. Agent (Wyatt Russell). There’s certainly a lot of options with great storytelling potential for the film.
Source: https://www.distractify.com/p/what-is-the-new-world-order-marvel-comics
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