RFI-Learning-System.pdf

REQUEST FOR INFORMATION

Transportation Security Administration

Enterprise Learning Management System (LMS) of Record with a Learning Experience Platform (LXP)

RFI Number: 70T01027I8403N002 Issuing Office: TSA Contracting & Procurement Issue Date: 10/23/2026 Response Due: 11/2/2026

1. PURPOSE OF THIS REQUEST FOR INFORMATION

The Transportation Security Administration (TSA) is conducting market research regarding commercially available capabilities and acquisition approaches for an enterprise digital learning ecosystem consisting of:

1. An official enterprise LMS of record; with

2. A modern LXP

TSA seeks industry information regarding mature, FedRAMPED secured, Section 508 accessible, scalable, interoperable, and vendor-neutral solutions capable of supporting TSA's geographically dispersed workforce and operational environment.

The intent of this RFI is to assist TSA in:

• Assessing commercial market capability and maturity;

• Identifying qualified small, medium, and large business sources;

• Refining performance objectives and operating constraints;

• Recommending deployment models, implementation phases, governance and support responsibilities, key performance measures, post-implementation evaluation methods, and processes for continuous improvement;

• Identifying migration, integration, cybersecurity, accessibility, and transition risks;

• Developing lifecycle cost estimates;

• Evaluating potential acquisition, contract, competition, and pricing strategies; and

• Informing any future solicitation.

The Government issues this RFI solely for market research purposes and acquisition planning. It is not a solicitation, Request for Proposal, Invitation for Bid, or Government commitment to issue a future solicitation or make an award.

The Government will not reimburse respondents for costs associated with preparing or submitting a response.

2. PROGRAM BACKGROUND

TSA's operational readiness depends on timely, accessible, consistent, measurable, and auditable training delivery across a geographically dispersed, and multigenerational workforce.

TSA has identified an opportunity to strengthen training consistency, expand flexible learning pathways that appropriately recognize prior knowledge and experience, improve training content update and deployment speed, and provide greater enterprise visibility into workforce training and readiness.

TSA is therefore exploring an integrated digital learning environment combining the official recordkeeping, compliance, certification, and administrative functions of an enterprise LMS with the learner-centered discovery, personalization, modular learning, and engagement capabilities of a modern LXP.

The contemplated environment must support TSA Headquarters, field and airport operations, training centers, international locations, and authorized remote environments.

3. PROGRAM OBJECTIVE

TSA's objective is to acquire and deploy a secure, accessible, interoperable (with all TSA-approved software and hardware), and vendor-neutral enterprise learning ecosystem that:

• Provides an official system of record for training and compliance;

• Improves learner access and experience;

• Accelerates proficiency and operational readiness;

• Supports appropriately controlled adaptive, modular, and learning test-out assessment options;

• Enables rapid and controlled content development and deployment;

• Standardizes enterprise training administration and delivery;

• Provides actionable enterprise analytics and visibility; and

• Preserves Government ownership, portability, and control of Government data and content.

TSA is seeking industry recommendations regarding the most effective technical, implementation, acquisition, and commercial approach for achieving these outcomes.

4. PERFORMANCE OBJECTIVES

Respondents should describe how their proposed approach would achieve the following objectives.

Objective 1 — Official LMS of Record and Compliance Reporting Maintain complete, accurate, secure, traceable, and auditable records of training assignments, participation, completion, assessments, certifications, qualifications, equivalencies, and compliance status.

The capability should support legal and policy records-retention requirements and provide visibility into both compliant and non-compliant populations.

Objective 2 — Modern Learner-Centric LXP Integration Provide an accessible, intuitive, super-intelligence-enabled, and engaging learner experience supporting learning discovery, centralized curation, recommendations, personalized pathways, gamification, surveys and flexible learning delivery across TSA workforce populations and operating environments.

Objective 3 — Adaptive, Modular, and Test-Out Assessment Pathways Support appropriately controlled assessments for modular learning, diagnosis, adaptive learning, prior knowledge or demonstrated proficiency, and test-out or equivalency (when TSA authorizes).

Objective 4 — Rapid Content Creation, Curation, and Deployment Enable authorized personnel to develop, review, approve, curate, reuse, modify, publish, and retire learning content efficiently while maintaining appropriate governance, accessibility, version control, approval authority, and traceability.

Objective 5 — Standardized Enterprise Training Delivery Support standardized enterprise training administration and delivery while permitting unique configuration for different TSA organizations, occupational groups, missions, locations, and learner populations.

Objective 6 — Enterprise Analytics, Dashboards, and Visibility Provide configurable reports, dashboards, alerts, analytics, and data-export capabilities supporting compliance management, workforce readiness, operational management, program evaluation, and executive decision-making.

Objective 7 — Secure Interoperability, Open Standards, and Portability Support secure integration using documented interfaces and recognized interoperability standards while minimizing technical and contractual vendor lock-in. The system must support user and administrator configuration according to the Principle of Least Privilege (PoLP), only granting the minimum level of access, permissions, or resources needed to perform responsibilities, and no more.

The Government must retain sole ownership and control of Government data and content and must be capable of exporting records, data, metadata, content, and other Government-owned information in nonproprietary formats that are compatible with TSA-approved hardware and software.

Objective 8 – Operational Continuity, Historical Record Import & Export Capability Maintain continuity of TSA learning, compliance, qualification, certification, and workforce-readiness operations during implementation, migration, system outages, and transition between systems. The solution must support the accurate, secure, traceable, and auditable import, validation, reconciliation, retention, and retrieval of historical training records, including training assignments, completions, assessments, certifications, qualifications, equivalencies, waivers, and associated metadata and audit trails.

The capability should minimize disruption to learners, supervisors, administrators, and mission operations; preserve the integrity and usability of migrated Government records; identify and resolve migration exceptions; and support contingency procedures for maintaining essential training and compliance activities during planned or unplanned service interruptions.

5. OPERATING CONSTRAINTS

The proposed solution must operate within applicable federal, DHS, and TSA policy, statutory, accessibility, cybersecurity, records-management, privacy, and operational requirements.

For market-research purposes, respondents should address their ability to support the following conditions:

5.1 Open Architecture

TSA seeks a solution based on documented interfaces and open, or broadly adopted, standards.

Respondents should identify noteworthy proprietary dependencies affecting interoperability with TSA hardware and software, licensing, contracts, data portability, content portability, migration, or transition. Respondents should also indicate potential future integration barriers as much as possible.

5.2 Government Data Ownership

Government data and Government-developed content must remain under Government ownership and control. Use or indexing on any public-facing systems is strictly prohibited.

5.3 Security and Hosting

Respondents should identify the current federal cloud authorization status of the proposed solution, including whether the solution currently holds FedRAMP Moderate authorization or higher.

Responses should describe, at a non-sensitive level, relevant capabilities for:

• Identity and access management, including single sign-on;

• Role-based access;

• Encryption;

• Audit logging;

• Security monitoring;

• Incident response;

• Backup and recovery;

• Continuity of operations;

• Supply-chain risk management; and

• Protection of Sensitive Security Information and other protected Government information, as applicable.

Respondents must not submit passwords, credentials, detailed network configurations, vulnerability information, or cybersecurity-sensitive technical information.

5.4 Accessibility

The solution should support compliance with Section 508 and applicable Web Content Accessibility Guidelines.

Respondents should identify the availability and status of current accessibility documentation and describe accessibility across learner, administrator, authoring, reporting, and supported mobile interfaces.

5.5 Super Intelligence (SI) / Artificial Intelligence (AI)

The proposed solution should contain super-intelligence-enabled capabilities; respondents should identify:

• Each SI-enabled function;

• The standard SI function status, such as required, optional, configurable, or if it defaults to "enabled";

• The customer or Government data the capability processes;

• Where processing occurs;

• Intent or current practice to retain or use Government information to train, tune, or improve any model;

• Available human-review, approval, monitoring, explainability, audit, and validation controls; and

• The extent to which TSA may disable or restrict SI functions without impairing essential

LMS functionality.

Using Government data to train public or otherwise unauthorized commercial models is strictly prohibited. Senior Executive Service level TSA employee may authorize, in writing, training SI in TSA systems with TSA data for exclusive TSA use.

5.6 Performance and Operational Environment

The proposed solution must support a geographically dispersed workforce and should perform reliably across a range of operating conditions, including locations with constrained bandwidth or higher network latency.

Respondents should identify any obstacles to meeting this requirement, including, but not limited to, availability, scalability, resilience, mobile, continuity, disaster-recovery, monitoring, and service-management capabilities.

6. REQUESTED INDUSTRY INFORMATION

NOTE: Respondents should clearly distinguish between capabilities that are:

A) Currently available as standard commercial functionality;

B) Available through configuration;

C) Dependent on third-party products or integration;

D) Requiring customization; or E) Planned for a future product release.

TSA requests concise responses to the following:

6.1 Company and Proposed Solution

6.1. Provide the respondent's legal name, business address, point of contact, business size, socioeconomic status, and applicable contract vehicles (i.e. GSA, other Government Wide Area Contract vehicles, DHS Strategic Sourcing Vehicles, etc.).

6.1.2. Describe the proposed solution, including the LMS, LXP, hosting environment, principal software providers, implementation partners, and material subcontractors.

6.1.3. Identify the advantages, limitations, and integration dependencies of the proposed model.

6.1.4. Explain whether the proposed LMS and LXP are:

• A single, integrated platform;

• Separate products from one provider; or

• Products from multiple providers.

6.1.5. Identify the advantages, limitations, and integration dependencies of the proposed model.

6.1.6. Describe relevant experience implementing and operating comparable enterprise learning solutions for large, geographically dispersed organizations.

6.2 Ability to Achieve TSA Performance Objectives

6.2.1. Describe how the proposed solution would function as TSA's official LMS of record and maintain accurate, auditable training, qualification, certification, and compliance records.

6.2.2. Describe the learner experience and LXP capabilities, including learning discovery, curation, recommendations, learner pathways, search, engagement, gamification and surveys.

6.2.3. Describe support for instructor-led, virtual instructor-led, web-based, blended, mobile, modular, microlearning, and field-based training. Also describe any innovative instructional methods supported.

6.2.4. Describe capabilities for assessments, adaptive learning, equivalencies, recognition of prior learning or proficiency, certification, recertification, waivers, and test-out options.

6.2.5. Describe content authoring, review, approval, accessibility validation (Section 508), version control, publication, reuse, retirement, and control capabilities.

6.2.6. Describe how the solution supports enterprise standardization while allowing controlled configuration by organization, workforce population, mission, role, or location.

6.2.7. Describe dashboard, report, alert, analytics, and data-export capabilities available to learners, supervisors, administrators, executives, program managers, and auditors.

6.2.8. Describe how the solution could measure or provide data supporting analysis of training completion, compliance, proficiency, time-to-readiness, learner outcomes, and content effectiveness.

6.3 Architecture, Integration, and Portability

6.3.1. Provide a high-level description of the proposed architecture and major system components.

6.3.2. Identify supported learning and integration standards, including SCORM and AICC, and any additional standards or documented application programming interfaces the solution supports.

6.3.3. Describe the approach to identity integration, organizational hierarchy management, personnel updates, roles, locations, data exchange, reconciliation, error handling, and integration monitoring.

6.3.4. Identify pertinent proprietary technologies, file formats, licensing dependencies, or interfaces that could limit competition, interoperability, portability, or future transition.

6.3.5. Explain how TSA could export Government-owned records, data, metadata, configurations, and content at any time and upon contract completion.

6.4 Security, Accessibility, and SI

6.4.1. Identify the proposed solution's current FedRAMP authorization status and deployment model.

6.4.2. Describe, at a non-sensitive level, the solution's security, privacy, identity, access-control, audit, encryption, continuity, incident-response, and supply-chain-risk-management capabilities.

6.4.3. Provide the status and date of the solution's current Accessibility Conformance Report or equivalent documentation and identify any material known accessibility limitations.

6.4.4. Describe any SI-enabled functions and explain the associated Government-data protections, human controls, auditability, configuration options, and ability for TSA to disable individual SI functions.

6.5 Implementation, Migration, and Operational Assessment

6.5.1. Recommend an implementation approach covering discovery, configuration, integration, data and content migration, testing, accessibility validation, training, deployment, stabilization, and transition to operations.

6.5.2. Provide a realistic implementation schedule and identify the major Government and contractor dependencies affecting that schedule.

6.5.3. Describe experience migrating enterprise learning records, training histories, certifications, qualifications, content, metadata, and audit trails from legacy environments.

6.5.4. Recommend the scope, scale, duration, participants, use cases, and success criteria for an operational assessment or proof of concept that would allow TSA to validate major solution assumptions before enterprise deployment.

6.5.5. Identify the most significant technical, operational, migration, security, accessibility, organizational, adoption, or schedule risks TSA should evaluate before proceeding with enterprise implementation.

6.6 Acquisition and Commercial Model

TSA is considering a contract structure consisting of a one-year base period followed by a five-year option period. TSA seeks industry feedback regarding whether this structure is consistent with commercial practice and supports effective competition and lifecycle cost control.

6.6.1. Recommend an acquisition strategy for obtaining the contemplated LMS/LXP capability.

Address whether TSA would benefit most from acquiring the LMS/LXP as an integrated system or benefit most from acquiring only necessary components or services.

6.6.2. Identify components to potentially compete separately without creating unacceptable interoperability, accountability, security, performance, or integration risk.

6.6.3. Describe the preferred commercial licensing model, including the pricing basis such as, named users, active users, concurrent users, enterprise population, consumption, storage, transactions, or another pricing basis.

6.6.4. Identify minimum commitments, major price-volume thresholds, separately priced capabilities, potential price escalators, and other significant lifecycle cost drivers.

6.6.5. Provide a rough order-of-magnitude lifecycle cost estimate separating, at a minimum:

• Discovery and configuration;

• Operational assessment/proof of concept;

• Implementation;

• Data and content migration;

• Integration;

• Software licensing;

• Hosting/cloud consumption;

• Storage and data egress;

• Training and change management;

• Accessibility activities;

• Help-desk and technical support;

• Operations and maintenance; and

• Transition-out services.

Identify all material pricing assumptions.

6.6.6. Comment on the advantages, disadvantages, commercial implications, and pricing implications of TSA's anticipated one-year base period followed by a five-year option period.

6.7 Performance Management and Transition

6.7.1. Recommend the most meaningful contractor-controllable service levels, performance measures, and key performance indicators for an enterprise LMS/LXP environment.

Respondents should distinguish between:

• Measures that the contractor directly controls;

• Measures that Government dependencies materially affect; and

• Outcome measures requiring monitoring but that may not be appropriate contractual performance standards.

6.7.2. Describe the proposed transition-out approach, including data extraction, content transfer, knowledge transfer, administrative support, timing, cost drivers, and actions TSA should take during contract performance to avoid vendor lock-in.

6.7.3. Identify any additional requirement, acquisition, implementation, technical, or commercial issue TSA should consider before issuing a solicitation.

7. APPLICABLE FRAMEWORK

The proposed solution may be subject to federal, DHS, and TSA authorities and policies, including those addressing:

• Aviation-security training requirements;

• DHS employee learning and development;

• Section 508 accessibility;

• Learning-content interoperability;

• Information security;

• Sensitive Security Information;

• Federal records retention;

• Supply-chain risk management; and

• Federal cloud-security authorization.

TSA invites industry to identify any additional relevant federal requirement or commercial practice when refining the acquisition.

8. ANTICIPATED PERIOD AND PLACE OF

PERFORMANCE

TSA anticipates a five-year (one-year base period and four one-year option periods) period of performance.

Work may occur at contractor facilities, Government-approved cloud environments, TSA Headquarters, TSA field locations and airports, training centers, and authorized remote locations.

9. RESPONSE FORMAT

TSA requests responses organized as follows:

1. Cover Page;

2. Executive Summary;

3. Company and Business Information;

4. Proposed Technical/Solution Approach;

5. Responses to all Section 6 requirements;

6. Recommended Implementation and Operational-Assessment Approach;

7. Recommended Acquisition and Commercial Approach;

8. Rough-Order-of-Magnitude Lifecycle Pricing;

9. Principal Assumptions, Dependencies, and Risks; and

10. Relevant Past Performance or Case Studies.

All submissions must comply with the Plain Writing Act of 2010 (Public Law 111-274) to facilitate rapid review. Reviewers appreciate concise answers that cross-reference supporting documentation rather than reproduced commercial literature. TSA also welcomes summary tables and graphics to simplify complex information.

Responses should not exceed 20 pages, excluding the cover page, table of contents, accessibility documentation, and product literature.

Responses should identify assumptions where TSA has not provided sufficient information for a definitive response.

10. SUBMISSION INSTRUCTIONS

Submit responses electronically in PDF/Word format to: Siobhan Lawson at Siobhan.Lawson@tsa.dhs.gov and Stacey Davis at Stacey.Davis@tsa.dhs.gov no later than 12:00PM, Eastern Standard Time (EST) on November 2, 2026.

State the following in the subject line: Response to TSA Enterprise LMS/LXP RFI 70T01027I8403N002.

Submit questions regarding this RFI to Siobhan Lawson at Siobhan.Lawson@tsa.dhs.gov and Stacey Davis at Stacey.Davis@tsa.dhs.gov no later than 12:00PM, EST on October 27, 2026.

11. PROPRIETARY AND SENSITIVE INFORMATION

Minimize and clearly mark any proprietary information or confidential commercial information included. Provide a nonproprietary version when practicable.

mailto:Siobhan.Lawson@tsa.dhs.gov mailto:Stacey.Davis@tsa.dhs.gov mailto:Siobhan.Lawson@tsa.dhs.gov mailto:Stacey.Davis@tsa.dhs.gov

Respondents must not submit classified information, system credentials, passwords, detailed security configurations, vulnerability information, or other cybersecurity-sensitive information.

12. GOVERNMENT USE OF INFORMATION

TSA may use information received through this RFI to support market research and acquisition planning, including:

• Refinement of the Statement of Objectives;

• Development of performance requirements;

• Acquisition planning;

• Competition and small-business strategy;

• Development of an operational assessment;

• Development of lifecycle cost estimates;

• Selection of an acquisition and pricing model;

• Identification of contract vehicles or acquisition pathways;

• Identification of implementation and transition risks; and

• Development of a future solicitation.

TSA may use Government support contractors to assist in evaluating RFI responses, subject to applicable conflict-of-interest and nondisclosure requirements.

13. DISCLAIMER

THIS REQUEST FOR INFORMATION IS SOLELY FOR INFORMATIONAL AND

PLANNING PURPOSES AND DOES NOT CONSTITUTE SOLICITATION. In accordance with FAR 15.201(e), responses to this notice are not offers and cannot be accepted by the Government to form a binding contract, nor do they affect a potential offeror's ability to respond to any future synopsis/solicitation, which may or may not follow or restrict the Government's eventual acquisition approach. The Government will not provide reimbursement for any information that may be submitted in response to this notice, and no basis for a claim against the Government shall arise from a response to this notice or Government use of any information provided. Respondents are solely responsible for all expenses associated with responding to this RFI.