Lighthouse, you're thinking about this all crabbed. A good parallel would be to look at the old Bug City book. There are no 'named villains' in Bug City, just 'bugs'. It is what happens afterwards, as the CZ keeps going, and local 'warlords' and the like emerge, that we start having anyone that could be considered a 'named villain'. With the Lockdown, we're still in this early 'everything in chaos' stage. If the situation isn't resolved soon, though, you'll see Boston become the new Chicago, no doubt, complete with all the local big-shots and warlords.