But the SHIELD pilot did.
Yes, a SHIELD pilot carried out
the strike, but SHIELD itself did not order
the strike. The Council ordered it.
Technicalities aside, the larger point remains: just who is this Council that either presumes to speak for the White House, or considers themselves above them?
According to the actor credits at the end of the film, they're called the World Security Council. So they're an international body, not an American one.