Two years after the events of The Avengers,[4] Steve Rogers lives in Washington, D.C., continues to work for the espionage agency S.H.I.E.L.D., and struggles to adapt to contemporary society. After meeting and befriending former Pararescue war veteran and PTSD counselor Sam Wilson on a morning jog, Rogers is called to help save a S.H.I.E.L.D. vessel from Algerian pirates led by Georges Batroc. Aboard, he discovers fellow agent Natasha Romanoff extracting data from the ship's computers, something Rogers was not briefed on. At S.H.I.E.L.D. headquarters, Nick Fury introduces Rogers to Project Insight, three Helicarriers linked to spy satellites and designed to preemptively eliminate threats.
Due to heightened encryption, Fury is unable to access the data Romanoff recovered. On his way to rendezvous with Maria Hill, he is ambushed by assailants disguised as police officers, led by a mysterious assassin called the Winter Soldier. Fury escapes, sneaks into Rogers' apartment, and informs Rogers that S.H.I.E.L.D. has been compromised. After Fury hands Rogers the USB flash drive with the data from the ship, he is gunned down by the Winter Soldier. Rogers gives chase, and his neighbor reveals herself as S.H.I.E.L.D.'s Agent 13. Fury appears to die in surgery, and Hill recovers the body.
The next day, Rogers is summoned by senior S.H.I.E.L.D. official Alexander Pierce. When Rogers withholds Fury's information, Pierce brands him a fugitive. Hunted by the agency, Rogers meets with Romanoff. Using data in the flash drive they discover an old S.H.I.E.L.D. underground base in New Jersey. There, they activate a supercomputer containing the preserved consciousness of Arnim Zola, who reveals that since S.H.I.E.L.D. was founded after World War II, HYDRA secretly operated within its ranks, sowing chaos across the world in the hope that humanity would willingly surrender its freedom in exchange for safety. Rogers and Romanoff narrowly escape death when a S.H.I.E.L.D. missile destroys the bunker.
They enlist the help of Wilson, and acquire his old "Falcon" winged-flight exoskeleton. After deducing that senior S.H.I.E.L.D. agent Jasper Sitwell is with HYDRA, they interrogate him until he reveals Zola developed a data-mining algorithm that can identify individuals who might become future opponents to HYDRA's plans. The new helicarriers will sweep the country, eliminating these individuals with their satellite-guided guns.
En route to S.H.I.E.L.D. headquarters, they are ambushed by the Winter Soldier. In the fight, Winter Soldier loses his mask and Rogers recognizes him as Bucky, his old World War II comrade. They are captured by S.H.I.E.L.D. but are rescued by a disguised Hill. She leads them to a hideout where they discover Fury is alive and planning a mission to prevent Pierce from launching Project Insight by replacing a chip within each Helicarrier to override their satellite control.
After members of the World Security Council arrive for the Helicarriers' launch, Pierce holds them hostage and reveals HYDRA's true motives. Rogers and Wilson storm two Helicarriers and replace the controllers, but the Winter Soldier destroys Wilson's suit and confronts Rogers at the third. They fight, with Rogers trying to revive Bucky's memories. Meanwhile, Fury and Romanoff confront Pierce and force him to unlock access to S.H.I.E.L.D's database so Romanoff can expose HYDRA's motives to the public by leaking classified information. After a brief conflict, Fury shoots Pierce dead. Aboard the third Helicarrier, a wounded Rogers replaces the final controller, allowing Hill to override the satellite operation and have all three vessels destroy one another. The Helicarrier carrying Rogers and the Winter Soldier crashes into the side of the Triskelion, where Wilson battles compromised agent Rumlow, who had earlier tried to capture Rogers.
Rogers falls off the vessel into the river. Slowly remembering his past, the Winter Soldier pulls Rogers from the water before disappearing. With S.H.I.E.L.D. in disarray, Fury destroys the last traces of his identity before heading to Europe in pursuit of HYDRA's remaining cells under the cover of his apparent death. Romanoff appears before a Senate subcommittee and later gives Rogers a dossier on the Winter Soldier program. Both Rogers and Wilson decide to track down the Winter Soldier.
A mid-credits scene takes place in a HYDRA lab, where Baron von Strucker is keeping Loki's scepter and two prisoners: one with superhuman speed, the other with telekinetic powers. In a post-credits scene, the Winter Soldier visits the Captain America exhibit at the Smithsonian Institution to learn of his past.
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