1. v1.7
TSA Office of Requirements and
Capabilities Analysis
April 2017

2. v1.7
Vision
Vision: ORCA is responsible for driving the strategy and development of
the Transportation Security Administration’s security architecture and
operational capabilities to enhance security and optimize mission
performance through analysis and innovation.
Purpose of ORCA:
• ORCA identifies and documents mission needs for TSA and serves as a lead user advocate for operational
requirements.
• As the integrated capability and risk analysis subject matter experts, ORCA is responsible for developing the
baseline of current mission capabilities and defining the system architecture to enable future capabilities.
• ORCA will determine capability gaps that are critical to securing transportation security and use the trade space
framework to analyze all relevant data, assess the most effective resolution to document risk and requirements.
• Through partnership with offices across TSA, DHS components and industry stakeholders, ORCA will serve as the
hub of innovation, with a focus on rapid engineering, solution development and demonstration.
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3. v1.7
Future State ORCA Organizational Chart
*This chart represents a notional
future state
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Office of Requirements and Capabilities
Analysis
Assistant Administrator
Deputy Assistant Administrator
Capabilities
Management
Checkpoint
Checked
Baggage
Mission IT
FAMS
OIA
ITF
(Emerging
Capabilities)
Strategy and
Process
Management
Solutions
Planning
Demonstration
Execution
Tech Scouting
Intermodal
Air Cargo
Requirements
Surface Security
Technology
Airport
Infrastructure
Protection
Capabilities
Assessment and
Qualification
Mission Support
Budget and
Procurement
Human
Resources
Mission
Performance and
Support
Logistics
Executive Advisors
Executive Assistant
Communications Director
Chief Scientist
Research Services
and Outreach
Requirements and
Architecture
System
Engineering
System
Architecture
Requirements
Development
JRC and
Requirements
Management
Analysis
Systems Risk
Analysis
Capability
Analysis
Methodologies
and Standards
(Lean Six
Sigma)
Human
Performance

4. v1.7
ORCAAlignment to Capability Processes
ORCA directly supports TSA’s mission by assessing current state operations, conducting gap analysis, managing
needs identification, and developing requirements to generate new and improved security capabilities in alignment
with the future vision for aviation security.
ORCA Primary Functions
ObtainAD102 Deploy / Support
Need /
Analyze
Deployment / Operations &
Maintenance / Disposition
PlanningSELC
Solution
Engineering
Require-
ments
Design Develop
Integrate
and Test
Implement
ORCA was created to address challenges identified in TSA’s acquisition and requirements development structure, including
the lack of an integrated operational and technical planning and architecture.
Purpose of Creating ORCA:
• Establish a central capabilities and requirements organization
• Build capability for requirements development by leveraging existing assets or creating new positions
• Document processes, roles, responsibilities, and authorities of all organizations involved in the process
ORCA acts as the user representative to move capabilities throughout all stages of the capability development lifecycle.
ORCA Secondary Functions
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5. v1.7
Front Office
• Determine strategic goals for ORCA in
alignment with TSA and DHS guidance.
• Manage industry engagement and
stakeholder outreach activities.
• Engage DHS S&T and R&D communities,
setting priorities for assessment and
delivery of emerging capabilities.
• Coordinate and prioritize research and
development activities to assess and mature
emerging capabilities.
• Provide transparency as it relates to the
ORCA mission and emerging capabilities.
Core Functions
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The Front Office coordinates across ORCA to set and guide strategic priorities. Members of this office provide
leadership and subject matter expertise while promoting integration and innovation across the office. Within the
Front Office the Research Services and Outreach group supports ORCA’s mission by monitoring emerging
capabilities and market trends, coordinating with federal and industry stakeholders, and conducting outreach as the
main point of contact for ORCA
Identify
Need
Establish
Current
and Future
Baseline
Define
Requirements
Analyze and
Select
Innovate

6. v1.7
Requirements and Architecture Division
Requirements and Architecture Division (RAD) facilitates the development of an integrated system and oversees
requirements development. The division proactively defines future capabilities at a system-wide level to enable an
integrated, interoperable, and modularized system.
• Develop TSA’s systems architecture to create
consistent processes and outcomes for Transportation
Security Equipment (TSE).
• Continuously evaluate system operational baseline to
identify any sources of inefficiencies, safety, or
security issues and recommend approaches for
resolving these issues.
• Establish requirements through MNS, CONOPS, and
ORDs.
• Support the DHS Joint Requirements Council and
provide expertise for requirements and the JRC and
JRIMS process.
• Provide system-level engineering expertise to inform
and guide technical requirements development and
capability analysis.
• Working with the CAE, establishment and
maintenance of a TSA Solution Development
Process.
Core Functions
6
Identify
Need
Establish
Current
and Future
Baseline
Define
Requirements
Analyze and
Select
Innovate

7. v1.7
Analysis Division
Analysis Division (AD) performs analysis according to the trade space framework to assess the threat landscape,
identify operational inefficiencies, evaluate operator performance, and measure passenger experience to inform
requirements and identify capability gaps.
• Maintain a mission based desired state for TSA
• Maintain a baseline of TSA’s mission based
abilities
• Conduct “threat” vulnerability and risk analysis
• Conduct “operational” vulnerability and risk
analysis
• Maintain a prioritized list of Capability Gaps
• Determine Course of Action to address TSA
capability gaps
• Manage the Modeling & Simulation capability for
TSA
Core Functions
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Identify
Need
Establish
Current
and Future
Baseline
Define
Requirements
Analyze and
Select
Innovate

8. v1.7
Capabilities Management Division
Capabilities Management Division (CMD) represents the ORCA AA as the Lead Business Authority (LBA). The division
serves ass the user representative, ensuring the highest priority requirements are met through transportation security
capability development. As LBA, CMD coordinates with other TSA offices throughout the Capability Lifecycle to assist
in the development of solutions that support risk based security, ensure efficient and effective implementation o new
initiatives and standardization efforts, and verify that fielded solutions meet user needs.
• User Representative for TSA Mission Operations
• Drive improvements in screening effectiveness
• Expansion of supporting TSA Pre✓™ tools
• RBS Efficiencies and Optimization Visits
• Lean Six Sigma Performance and Improvement
Projects
• Field Support for Technology Training &
Deployment
Core Functions
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Identify
Need
Establish
Current
and Future
Baseline
Define
Requirements
Analyze and
Select
Innovate

9. v1.7
Innovation Task Force (Emerging Capabilities)
Innovation Task Force Division (ITFD) monitors emerging capabilities and market trends, and coordinates with
federal and industry stakeholders to identify and demonstrate emerging solutions to gather data and feedback, enable
the development of mature solutions for the curb to gate screening process, and inform TSA requirements.
• Through industry solicitation, identify and
demonstrate solutions to gather data and feedback
on emerging capabilities.
• Enable the development of mature solutions for
the curb to gate screening process.
• Inform future TSA requirements.
• In partnering with aviation stakeholders, integrate
and demonstrate emerging capabilities.
Core Functions
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Identify
Need
Establish
Current
and Future
Baseline
Define
Requirements
Analyze and
Select
Innovate

10. v1.7
Intermodal Division
Intermodal Division (IMD) supports TSA’s mission to secure all modes of transportation including non-aviation
domains by evaluating existing security technologies and developing requirements, identifying potential threats and
vulnerabilities, and supporting implementation of these security measures.
• Improve surface transportation, air cargo, and
airport infrastructure security by developing
requirements for and/or conducting evaluations of
security technologies.
• Evaluate existing security technologies and
develops requirements for new technologies.
• Provide decision support for stakeholders’
reduction of risk.
• Provide capabilities to enhance recovery from
assault to transportation modes and related
personnel, infrastructure, vehicles, and goods.
Core Functions
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Identify
Need
Establish
Current
and Future
Baseline
Define
Requirements
Analyze and
Select
Innovate

11. v1.7
Transportation Security Capability Analysis
Process (TSCAP)
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The Transportation Security Capability Analysis Process (TSCAP) is used by the TSA Office of Requirements and Capabilities Analysis
(ORCA) to identify TSA’s needs, support better decision making, and recommend security solutions.
Process Evaluation Criteria
Industry and Academia Applicability
Passenger
Experience
Industry
Vitality
Fiscal /
Policy
Operational
Efficiency
Security
Effectiveness
TSA
Risk Mitigation
Trade Space
TSCAP allows TSA to document the applicability of new and emerging solutions to different capability
gaps to justify investment from DHS. TSCAP capability gaps have been made public in an un-prioritized
list in the TSA Strategic Five Year Plan and can be used to guide research and development.
Capability Gap Process
Examine measurable performance factors
(e.g., throughput rates, system detection)
against Department and Agency legislative
authorities and strategic plans.
Case Study Process
Complete a deep dive analysis into a
capability gap(s) and identify alternatives to
close the gap. Select appropriate
alternatives to pursue R&D investments /
new acquisition programs.
Establish
TSCAP
Baseline
Identify &
Prioritize
Cap Gaps
Develop
Baseline
Mitigation
Options
Analysis
Handoff to
Program
Office
Capability Gap Process Case Study Process
1 2
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12. v1.7
Appendix
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13. v1.7
Transportation Security Capability Analysis Process (TSCAP) is a consistent, repeatable process that
provides a toolset of capabilities to tackle the requirements development challenges.
TSCAP Overview
Step 1: Update
Goals and
Objectives,
Threats, Counter-
measures and
Configurations
Step 2: Update
Trade Space
Performance
Baselines
Step 7: Conduct
Analysis and
approve
Analysis Plan
Step 6: Generate
Alternatives &
approve
Alternatives for
analysis
Step 5: Identify
Mitigation
Options by
Collaborating
with
Stakeholders
Step 8: Approve
Analytic Results
& Approve CAR
Step 3: Perform
Security Capability
Gap Analysis
Step 4: Develop
Baseline
requirements and
develop CASP
Establish TSCAP
Baseline
Identify &
Prioritize Cap
Gaps
Develop
Baseline
Mitigation
Options
Analysis
Handoff to
Program
Office
Capability Gap Framework
1
Case Study Process
2
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14. v1.7
Impact of TSCAP
TSCAP provides a structured, repeatable and
transparent process that strengthens TSA’s ability to
establish enterprise level capability gaps. Key elements
of TSCAP include:
1 What is the problem: Establish the capability gap
2 Why we need to solve it: Establish the risk of the gap
3 How we can solve it: Document Courses of Action
The TSCAP process identifies TSA capability gaps
in meeting the TSA desired state. These gaps
should identify:
Strategic
Plans
Purpose Traceability
A comprehensive
view of essential
capabilities needed
to perform TSA’s
mission

An understanding
of capability gaps
that impact
multiple offices

The ability to
make prioritized
decisions

A rationale for
potential
GAO/OIG audits

Well-documented
justification for
establishing and
funding programs

Benefits
1. Differences between current
state and desired state;
2. Identify all of the current efforts
underway to address the gap(s);
3. Relationship of gaps/current
efforts;
4. The risk(s) associated with each
gap.
In the past, TSCAP has been used to justify investment decisions in checkpoint and checked baggage programs.
TSCAP is expanding to include mission essential capability identification across the enterprise as TSA moves to
inform investment decisions aligned to JRIMS, a DHS-wide process used in PPBE.
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