science bros
I'm not completely stunned, since it involves rehabilitating a former HYDRA operative, and you know. After Bucky. I can see why he'd want to think that no matter how much shit they went through or what they've done, there's something in all of them that's... salvageable.
But Bucky was more of a domesticated husky who was abused and stuck in a dog-fighting ring. Most of these agents are just wolves.