The One Above All moves through creation wearing whatever face suits the moment, and here he takes the form of a decorated US Army general seated among the crowd gathered to honor Captain America. A medal for valor is to be pinned on the hero for his rescue of hundreds of captured men, and the assembled brass and public wait to lay eyes on the legend himself.
The moment does not go as the ceremony intends. When a stand-in walks out in Steve Rogers' place, the disguised watcher of all things leans to the man beside him and remarks that he thought the hero would be taller. He observes, comments, and passes on, his hand never quite touching events yet always somehow present at them.