In Civil War the other Winter Soldiers are given a blue substance to create them. Most people assume Howard simply created his own Super Soldier Serum but in First Avenger Steve also needed the Birth Chamber not just the formula. In Civil War the WS are simply given this substance and locked in a room.
I believe it is not a new Super Soldier serum but in fact Kree Blood. In AoS it made people insane, much like the WS. Also the writers of Civil War also were writers for Agent Carter.
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