Speaking as Coulson, it's unclear. I feel like that are other formidable S. H. I. E. L. D. elements and they don't have Coulson's connection to some of these people. I think what I like about what seems to be going on is there are differing opinions about who's where on the hierarchy and I think that's some of what goes on in the movie.
I think you can have a whole terrific, smart career as a second and third banana and work more and have much less risk than the lead guy. But I like being the lead guy.