The leaked paper was written at a time of intense debate about a capability gap leaving intelligence agencies less able to track suspects.

And an 8 billion reserve has been created that can be used to plug capability gaps with a further 4 billion for unexpected cost increases.

Meanwhile, costs are rising, and concerns grow about capability gaps.

The model included thee levels of capabilities, value contribution, performance targets, capability gaps, recommended actions and sourcing decisions.

When compared to actual performance, the method outlined an approach to identify capability gaps and priorities.