Q: If I draw the Affairs of State obligation, can I choose the second option if I have no Black Panther upgrades in play?
A: No. You cannot choose an option that would have no effect on the game, unless you have no other viable options. If you are in alter-ego form and ready, and you have no Black Panther upgrades in play, you must exhaust T’Challa. -(Developer Ruling , Hall of Heroes)