That's what it was. The NSA was reverse proxying Google.
The legit explanation (given the domain name) is probably they wanted to use reCAPTCHA, but block all non-NSA hosts with a firewall or something.
This is not great, because the NSA expanded its attack surface to all of google.com.
The more conspiracy explanation is that this is actually a phishing page set up, and due to a misconfiguration it's exposed under captcha.nsa.gov, but Occam's Razor should apply here.