Hydra's absolutely ridiculous shackles for Steve Rogers
Because they know what Steve is capable of through BUCKY. Imagine. All they have is second hand information about Steve, some footage from WWII and the Battle of New York. Very few have really seen HOW strong he is or capable of escaping from things.
But they have seen Bucky. They know what it takes to take him down and it’s terrifying. It was probably developed specifically to control him when he was “unstable”. So yeah, I doubt this was created to contain STEVE so much as it was created to contain BUCKY.