She had every choice in the matter. "I was just following orders" is not an excuse either legally or morally.
Again, *the law was not passed*. If it existed and Cap was refusing to sign it, she'd have *legal* justification, even if I'd view Cap in the *moral* right for refusing. I wouldn't particularly like her still, but I wouldn't think she was at fault.
But the law wasn't passed. Thus, it's all on her head. She had many, many choices, the simplest being telling her superiors "I'll ask him, but the law cannot be enforced until passed." The fact she might be fired does not excuse her. If you are a cop, and your supervisor tells you to go kill someone who filed an complaint against the police, you don't get to tell the jury later "well, man, I might have been fired if I said no! Had to do it!" and expect to get off.