NIEM Information Sharing Performance Report The report provides historical evidence of the development, expansion, adoption, and results of the National Information Exchange Model (NIEM) and its predecessor information-sharing standardization efforts. This report has been compiled retrospectively from publicly available historical evidence. It is intended in part to assess, rather than presume, the proposition that the events of September 11, 2001 materially accelerated the development, institutionalization, expansion, and adoption of the information-sharing standards effort that ultimately became NIEM. The report distinguishes, where practicable, source-reported facts from calculated measures and inferred implications. Broader information-sharing outcomes are not attributed to NIEM unless available evidence supports such attribution. ^^ This report also serves as a demonstration of the potential value of representing planning and performance information in machine-readable form. John Teeter, while serving as Deputy Chief Information Officer at the U.S. Department of Health and Human Services, proposed a Planning and Accountability domain for NIEM. The use of StratML Part 2 to render NIEM performance information illustrates the kind of structured planning and accountability information such a domain might enable. This implication is analytical and should not be construed as an assertion by NIEM or its current governing organization. ^^ The Vision and Values in this report have been inferred from NIEM's documented purposes, principles, history, and practices rather than represented as formally adopted NIEM statements. They are included to provide a coherent StratML representation and should be interpreted as analytical characterizations rather than source assertions. ^^ Submitter's Note: The performance indicators were initially provided by Grok and ChatGPT has expanded and rendered them in StratML format. I have edited the goal and objective names in the form at https://stratml.us/forms/Claude/Part2.html National Information Exchange Model NIEM _5a8a315d-7678-465d-970d-2ea3ca759c74 A common vocabulary and framework enabling information exchange across diverse public and private organizations. U.S. Department of Justice Jointly established NIEM with the U.S. Department of Homeland Security by leveraging and expanding the Global Justice XML Data Model into multiple domains. Sponsor Performer U.S. Department of Homeland Security Jointly established NIEM with the U.S. Department of Justice by leveraging and expanding the Global Justice XML Data Model into multiple domains. Sponsor Performer NIEMOpen Open standards project through which the NIEM information-sharing framework and specifications continue to evolve under OASIS Open. Steward Performer NIEM Communities of Interest Communities sharing information within and across NIEM domains. Participants Performer Beneficiary Information Exchange Partners Federal, state, local, tribal, international, private-sector, and other organizations exchanging information using NIEM-related standards and specifications. Users Performer Beneficiary Interoperable information sharing across organizational, jurisdictional, and domain boundaries _860720aa-c0dc-4ee4-b9ae-b7edcbaaf298 To enable communities to exchange information consistently through reusable information components, standards, and processes. _0c54d17a-a1d9-4ad0-865f-1e872ed37837 Interoperability Enable information to be exchanged and understood across organizational and technical boundaries. Reuse Promote reuse of common information components and exchange specifications. Collaboration Engage communities of interest in developing and maintaining shared information semantics. Consistency Apply common semantics, structures, and rules to facilitate reliable information exchange. Information Improve the ability of organizations and communities of interest to exchange and understand information consistently. _df71f7c5-ae28-4f61-a0ac-d7dcdb7d225e 1 Information Interoperability ~ NIEM describes its primary purpose as exchanging information and data at the message level across different communities of interest. Its common vocabulary provides agreed-upon terms, definitions, formats, and relationships independent of how information is stored in individual systems. The historical roots of this goal include information-sharing standardization efforts in the justice community that preceded the formal establishment of NIEM. Subsequent objectives and performance indicators in this report distinguish those predecessor efforts from NIEM itself so that changes occurring before and after September 11, 2001 can be evaluated rather than conflated. Standardization Improve interoperability among justice and public safety information systems by reconciling disparate data definitions and developing reusable information components. _7b276b98-82b4-4d86-a84f-357c7df2e97e 1.1 U.S. Department of Justice Office of Justice Programs Sponsored development of the Global Justice XML Data Model. Sponsor Performer Global Justice Information Sharing Initiative Provided collaborative governance and advice for development of the Global Justice XML Data Model. Collaborator Performer Georgia Tech Research Institute Provided technical development support for the Global Justice XML Data Model. Developer Performer Justice and Public Safety Communities Organizations and practitioners requiring interoperable justice and public safety information exchanges. Users Performer Beneficiary Justice Information Standardization ~ The Global Justice XML Data Model endeavor began in March 2001 as an effort to reconcile data definitions. Thus, the documentary record establishes that this direct predecessor of NIEM was underway approximately six months before the terrorist attacks of September 11, 2001. The effort subsequently evolved into a broader XML-based framework for information sharing throughout the justice and public safety communities. This chronology supports the proposition that the technical and institutional roots of NIEM predated 9/11; it does not by itself establish whether or by how much 9/11 accelerated the effort. Source: https://bja.ojp.gov/program/it/national-initiatives/gjxdm/background 1.1.1 Source Components Number _96e078e9-388a-4a4d-a028-9f73c681a914 The source value is approximate. The source materials included XML schemas, database schemas, data dictionaries, code tables, and other documented data requirements. Source: https://xml.coverpages.org/ni2003-04-11-a.html 2003-04-11 16000 Approximately 16,000 data elements, types, and attributes were identified from existing local, state, and federal source documents during development of the Global Justice XML Data Model. 1.1.2 Unique Elements Number _1092f066-feb4-452e-9b5f-50e61a76ae4d The source value is approximate. This measure reflects harmonization rather than elimination of information. Source: https://xml.coverpages.org/ni2003-04-11-a.html 2003-04-11 2000 Approximately 2,000 unique data elements resulted from analysis and reconciliation of approximately 16,000 source components. 1.1.3 Reusable Objects Number _60723b1a-ec6e-4759-9945-e6dfc6811ac8 The source value is approximate. The reusable objects were intended to increase interoperability by providing standardized core components accessible from multiple sources and reusable in multiple applications. Source: https://xml.coverpages.org/ni2003-04-11-a.html 2003-04-11 300 Approximately 300 reusable data objects incorporated the reconciled unique data elements. 1.1.4 Harmonization Percent _74ce3076-f574-46d8-bfe8-fb4ae3e493bb This percentage is calculated for this performance report and is not a performance measure reported by GJXDM or DOJ. Calculation: (16,000 - 2,000) / 16,000 × 100 = 87.5 percent. Because both source quantities are approximate and harmonization does not imply loss or elimination of source semantics, the percentage should be interpreted only as an indicator of consolidation and reuse potential. 2003-04-11 87.5 Calculated 87.5 percent reduction in separately represented data elements when approximately 16,000 source components were reconciled into approximately 2,000 unique elements. 1.1.5 Implementations Number _e40fd024-cc22-49bb-a81e-0c0c116895bb The reported quantity is "more than 50"; NumberOfUnits records the documented lower bound of 50. Since the first prerelease in April 2003, GJXDM underwent public review, pilot validation, feedback and error reporting, and more than 100 modifications before the Version 3.0 operational release. Source: https://groups.oasis-open.org/communities/community-home/digestviewer/viewthread?CommunityKey=4bbf9c9f-bd29-4adb-afab-018dc7d3f220&GroupId=139&MessageKey=e0cbbf58-620b-4e60-a895-a57ac1a856b1&hlmlt=VT 2004-01-22 50 More than 50 law-enforcement and justice-related projects had been implemented using GJXDM prerelease versions by the operational release of Version 3.0. Framework Expand justice information-sharing standards into a national, multi-domain framework for interoperable information exchange. _80e755be-f0ba-4276-99b9-a77d06fb02b7 1.2 U.S. Department of Justice Partnered in establishing NIEM and extending the experience and content of the Global Justice XML Data Model. Sponsor Performer U.S. Department of Homeland Security Partnered with the U.S. Department of Justice in establishing NIEM as a multi-domain information exchange framework. Sponsor Performer Information Sharing Communities Communities of interest requiring standardized information exchanges across organizational and domain boundaries. Participants Performer Beneficiary National Information Exchange Framework ~ In February 2005, the U.S. Department of Justice and U.S. Department of Homeland Security agreed to develop the National Information Exchange Model by leveraging the Global Justice XML Data Model and expanding its information-exchange capabilities into other domains. NIEM therefore represents an institutional and substantive expansion of a standards effort whose direct predecessor was underway before September 11, 2001. ^^ The timing and nature of this expansion are consistent with the proposition that post-9/11 information-sharing requirements accelerated and broadened the earlier effort. Chronology alone, however, does not establish the magnitude of causal influence attributable specifically to 9/11. Source: https://reference.niem.gov/niem/specification/naming-and-design-rules/5.0/niem-ndr-5.0.html 1.2.1 Domains Number Status _31eb86fc-5728-47e7-a057-f0c370624974 The seven-domain count is calculated for this performance report from the domains identified for NIEM 1.0. The NIEM Core is not counted as a domain because it provides common components shared across domains. The precise release date should be refined if an authoritative day-level date is established; October 2006 is documented as the release month. ^^ The nine-domain count is calculated from the domains identified for NIEM 2.0: Chemical, Biological, Radiological and Nuclear; Emergency Management; Immigration; Infrastructure Protection; Intelligence; International Trade; Justice; Maritime; and Screening. NIEM Core is not counted as a domain. The precise release date should be refined if an authoritative day-level date is established; July 2007 is documented as the release month. 2006-10-01 7 Baseline NIEM 1.0 incorporated seven substantive domains: Emergency Management, Immigration, Infrastructure Protection, Intelligence, International Trade, Justice, and Screening. 2007-07-01 9 Increased NIEM 2.0 expanded the model to nine substantive domains. 1.2.2 Domain Growth Percent _676d02f2-a49e-4d46-b255-d41cb77c8550 This percentage is calculated for this performance report and is not a performance measure reported by NIEM. Calculation: (9 - 7) / 7 × 100 = approximately 28.57 percent. Domain count is an indicator of scope rather than a direct measure of interoperability, adoption, usage, or outcomes. 2006-10-01 2007-07-01 28.57 Calculated increase of approximately 28.57 percent in the number of substantive NIEM domains from Version 1.0 to Version 2.0. 1.2.3 Scope ... Status _7eab8ac5-f27f-4f2a-912f-020fc4047225 This qualitative indicator summarizes a documented change in scope rather than assigning a numeric value to interoperability. The descriptor values are analytical characterizations used for this performance report. 2001-03-01 Justice-Focused The predecessor standardization effort was focused principally on justice and public safety information sharing. 2005-02-01 Multi-Domain DOJ and DHS agreed to expand the GJXDM-based approach into other domains through development of NIEM. 2006-10-01 National Multi-Domain NIEM 1.0 embodied a national framework spanning seven substantive domains. Adoption Increase adoption and operational use of standardized information exchanges across jurisdictions, agencies, and communities of interest. _35b70a69-75bb-4bb8-b4ed-917de767ef62 1.3 Federal Agencies Federal organizations using, implementing, evaluating, or supporting NIEM-based information exchanges. Participants Performer Beneficiary State Governments State government organizations using, implementing, evaluating, or supporting NIEM-based information exchanges. Participants Performer Beneficiary Local and Tribal Governments Local and tribal government organizations participating in interoperable information exchanges. Participants Performer Beneficiary International Partners Organizations outside the United States using or exploring NIEM-based approaches to information exchange. Participants Performer Beneficiary Operational Adoption ~ Adoption is more difficult to measure consistently than model size or domain count. NIEM can be used within independently developed and operated systems, and NIEM documentation has acknowledged the difficulty of obtaining a complete picture of adoption. Accordingly, the indicators below distinguish documented geographic reach from implementations, access points, and exchange specifications rather than treating them as interchangeable measures. 1.3.1 States Number _b6d59375-7296-45d8-8147-f925fa65584c The 2015 measure combines actual use with consideration of use and therefore should not be interpreted as 50 confirmed operational state implementations. By February 2021, the Bureau of Justice Assistance described NIEM as "used in all 50 states and internationally." Sources: https://bja.ojp.gov/sites/g/files/xyckuh186/files/media/document/fall_2015_gac_summary_c.pdf and https://bja.ojp.gov/library/publications/national-information-exchange-model 2015-12-31 50 All 50 states were reported as using NIEM at varying levels of maturity or considering its use. 2021-02-12 50 NIEM was reported as being used in all 50 states and internationally. 1.3.2 State Coverage Percent _177ad8a0-a921-488b-91c6-907f3bbdaead This percentage is calculated for this performance report from the Bureau of Justice Assistance statement that NIEM was used in all 50 states. Calculation: 50 / 50 × 100 = 100 percent. It measures geographic coverage, not the proportion of agencies, systems, exchanges, or transactions within each state using NIEM. 2021-02-12 100 NIEM use had been reported in 100 percent of the 50 U.S. states. 1.3.3 Access Points Number _6af03ac7-fd6e-4d71-870e-e92e24c38436 The reported quantity is "over 500,000"; NumberOfUnits records the documented lower bound. NLETS was identified by the Bureau of Justice Assistance as one of the first successful national implementations using GJXDM. The network connected all 50 states, territories, and every federal agency with a justice component. This is a metric for an implementation using NIEM's predecessor standard and should not be interpreted as 500,000 separate GJXDM or NIEM implementations. Source: https://bja.ojp.gov/program/it/niss/kb?page=1&subtopic=77281 500000 More than 500,000 access points were reported for NLETS, an early national implementation embracing the GJXDM standard. 1.3.4 Exchange Specifications Number _fd1ae252-521f-461b-b9ec-bdd35a1f7e69 An Information Exchange Package Documentation (IEPD) defines one or more recurring information exchanges and packages the schemas, documentation, and related artifacts needed to implement or reuse them. The Texas figure is a documented implementation example and is not a national total. Source: https://www.niem.gov/about-niem/iepd-registry/disposition-report 28 Twenty-eight Information Exchange Package Documentations were developed by the Texas Path to NIEM project to support information exchange between state and local government organizations. 1.3.5 Geographic Reach ... Status _a81f8302-83cb-4af7-8738-f961cb3f3bf6 The descriptor values are analytical characterizations for this performance report. They summarize changes in documented geographic and institutional reach and should not be interpreted as equivalent quantitative levels of implementation maturity. 2004-01-22 Multi-Jurisdictional GJXDM prereleases were being implemented in more than 50 justice-related projects. 2015-12-31 Nationwide All 50 states and a majority of federal agencies were reported as using NIEM at varying levels of maturity or considering its use. 2021-02-12 International NIEM was reported as being used throughout all 50 states and internationally. Results Improve the effectiveness, accountability, and measurable results of information sharing across organizational and jurisdictional boundaries. _a6973b80-f52c-49e1-9a96-bcb399f8cb37 2 Information Sharing Partners Federal, state, local, tribal, international, private-sector, and other organizations participating in information sharing. Participants Performer Beneficiary Public People benefiting from more effective, timely, accountable, and economical information sharing. Beneficiaries Beneficiary Information Sharing Results ~ The indicators under this goal concern the broader post-9/11 information-sharing environment in which NIEM developed and operated. Unless evidence expressly establishes attribution, improvements in terrorism-related information sharing, financial benefits, and other government-wide outcomes should not be attributed solely to NIEM. They are included as contextual outcome measures against which the potential contribution of common information-exchange standards can be considered. ^^ An inferred implication for planning and accountability is particularly relevant. NIEM enables structured exchange of operational information, yet historical NIEM materials have acknowledged limitations in obtaining a comprehensive picture of NIEM adoption. Similarly, the U.S. Government Accountability Office reported in 2008 that the Information Sharing Environment lacked sufficiently defined results and performance measures needed to assess implementation and improvements in information sharing. GAO recommended defining the results to be achieved and developing performance measures showing what had been accomplished and what remained to be done. Those recommendations were subsequently implemented. ^^ These measurement gaps illustrate the potential value of representing goals, objectives, stakeholders, performance indicators, targets, and actual results in standardized machine-readable form. They are therefore relevant to the proposed inclusion of a Planning and Accountability domain in NIEM and to this report's use of StratML Part 2 as a demonstration of that capability. Source: https://www.gao.gov/products/gao-08-492 Terrorism Improve the timely, accurate, useful, and effective sharing of terrorism-related information among government and nongovernment partners. _d377a285-e974-4aa9-b54c-57d5c45cf6dc 2.1 Office of the Program Manager for the Information Sharing Environment Planned, oversaw, managed, and assessed development and implementation of the Information Sharing Environment. Program Management Performer U.S. Department of Homeland Security Information Sharing Partner Performer Beneficiary U.S. Department of Justice Information Sharing Partner Performer Beneficiary Federal, State, Local, Tribal, International, and Private-Sector Partners Organizations sharing and safeguarding terrorism-related information through the Information Sharing Environment. Information Sharing Partners Performer Beneficiary Terrorism Information Sharing ~ The terrorist attacks of September 11, 2001 highlighted serious deficiencies in terrorism-related information sharing. Congress subsequently required establishment of the Information Sharing Environment through the Intelligence Reform and Terrorism Prevention Act of 2004. GAO designated terrorism-related information sharing as a High-Risk area in 2005 because serious challenges remained in analyzing and disseminating key information in a timely, accurate, and useful manner. ^^ In February 2017, GAO removed the area from its High-Risk List after determining that significant progress had been made. These developments provide strong evidence of a major post-9/11 institutional response and measurable improvement in the broader information-sharing environment. They do not, by themselves, quantify the portion of that improvement attributable to NIEM. Sources: https://www.gao.gov/products/gao-08-492 and https://www.gao.gov/products/gao-17-317 2.1.1 Information Sharing Risk ... Status _fdc68184-a136-43ae-b4b8-b42c589181fd This indicator uses GAO's High-Risk designation as an independent qualitative assessment of government-wide performance rather than as a NIEM-specific performance measure. The 2005 date should be refined if an authoritative exact designation date is established. Source: https://www.gao.gov/products/gao-17-317 2005-12-31 High Risk GAO designated terrorism-related information sharing as a High-Risk area because the federal government faced serious challenges in analyzing and disseminating key information in a timely, accurate, and useful manner. 2017-02-15 Removed GAO removed terrorism-related information sharing from its High-Risk List after finding significant progress in strengthening information sharing among federal, state, local, tribal, international, and private-sector partners. 2.1.2 High-Risk Duration Years _ae45781a-d34c-4e18-8df8-f5ee69fa098b GAO itself characterizes the period as 12 years, from 2005 through 2017. This duration measures the period during which GAO formally considered the area high risk, not the duration of NIEM implementation or the time required for NIEM to produce results. Source: https://www.gao.gov/products/gao-22-105184 2005-01-01 2017-02-15 12 Terrorism-related information sharing remained on GAO's High-Risk List for approximately 12 years before removal in February 2017. 2.1.3 Financial Benefits Dollars _96bc3a8e-498e-49d7-b7cb-343d78d90544 The reported amount is "nearly $531 million"; NumberOfUnits records $531 million as the approximate reported value. This is a GAO measure of financial benefits associated with progress in the broader terrorism-related information-sharing High-Risk area. It must not be interpreted as savings caused by NIEM. One component was approximately $125.889 million in avoided fiscal-year 2011-2015 costs following termination of DHS's Next Generation Homeland Security Information Network program after GAO recommended stronger acquisition controls. Source: https://www.gao.gov/products/gao-22-105184 2005-01-01 2017-02-15 531000000 Nearly $531 million in financial benefits to the federal government were associated with progress addressing the terrorism-related information-sharing High-Risk area during the approximately 12 years it remained on GAO's list. 2.1.4 Measurability ... Status _86fb961b-8400-4b2f-94db-8c4fba8b6457 GAO recommended in 2008 that the Program Manager more fully define the scope and specific results to be achieved and develop performance measures showing the extent to which the ISE had been implemented and information sharing improved. GAO subsequently closed both recommendations as implemented. The 2012 assessment included 20 agencies and provided maturity information concerning agency participation, planning processes, and compliance with technical guidance during acquisitions. This history demonstrates that information-sharing capability and performance-accountability capability are distinct but complementary requirements. Source: https://www.gao.gov/products/gao-08-492 2008-06-25 Insufficient GAO found that results and performance measures needed to guide implementation and assess progress in the Information Sharing Environment were insufficiently defined. 2012-07-31 Improved The ISE Annual Report to Congress provided performance data assessing agency performance in community, process, and technology and reported maturity measures across participating agencies. Performance Improve the ability to define, measure, assess, communicate, and sustain progress toward information-sharing objectives. _5dc662cf-28b8-4ef2-a760-c99124c040a9 2.2 NIEM Information-sharing framework whose potential inclusion of planning and accountability information is considered in this performance report. Standards Community Performer Beneficiary StratML Community Community supporting standardized machine-readable representation of strategic plans and performance plans and reports. Standards Community Performer Beneficiary John Teeter Former Deputy Chief Information Officer at the U.S. Department of Health and Human Services who proposed inclusion of a Planning and Accountability domain in NIEM. Proponent Performer Program Managers Officials responsible for defining intended results, coordinating implementation, assessing performance, and reporting progress. Performance Managers Performer Beneficiary Decision Makers People and organizations requiring reliable information about intended and actual results to make resource allocation, oversight, and policy decisions. Information Users Beneficiary Performance Accountability ~ John Teeter, while serving as Deputy Chief Information Officer at the U.S. Department of Health and Human Services, proposed inclusion of a Planning and Accountability domain in NIEM. Documentation of that proposal is available in the StratML Community plan at https://stratml.us/docs/SMLC2024.xml#_999403c6-52a7-415d-b883-5689ad607112 ^^ The historical performance record provides evidence relevant to the potential value of such a domain. In 2008, the U.S. Government Accountability Office recommended that the Information Sharing Environment more fully define its scope and specific intended results, milestones, projects, and initiatives and develop performance measures showing the extent to which the ISE had been implemented, information sharing had improved, what had been accomplished, and what remained to be done. Those recommendations were subsequently implemented. In 2011, GAO continued to identify planning and accountability shortcomings, including the absence of a complete implementation road map, incremental cost information, and a sufficiently developed enterprise architecture management plan. Later actions included strategic implementation planning that identified activities, completion dates, and responsible entities. ^^ The accountability challenge subsequently reappeared. GAO reported in 2023 that 13 of 16 ISE Implementation Plan priority objectives had been completed as of the beginning of 2017. Although agencies undertook projects addressing the three remaining objectives, there had been no ISE Program Manager since 2017 to guide and assess the work. Consequently, the amount of work remaining to complete the Implementation Plan could not be determined. ^^ An inferred implication is that information-sharing standards and performance-accountability standards address complementary requirements. NIEM enables interoperable exchange of mission and operational information. StratML enables interoperable representation of intentions and results, including organizations, stakeholders, goals, objectives, performance indicators, target results, and actual results. Representing such information in standardized, persistent, machine-readable form could reduce dependence on particular officials, reports, organizational arrangements, and institutional memory for maintaining performance visibility over time. ^^ This StratML Part 2 performance report is itself a demonstration of that potential. The observation is analytical and should not be construed as an assertion by NIEM, NIEMOpen, GAO, or any organization other than the compiler of this report. Sources: https://www.gao.gov/products/gao-08-492, https://www.gao.gov/products/gao-11-455, https://www.gao.gov/products/gao-23-105310, and https://stratml.us/docs/SMLC2024.xml#_999403c6-52a7-415d-b883-5689ad607112 2.2.1 Priority Objectives Number _ce7db767-c44d-4234-a2a4-a135c727890a GAO reported that federal officials developed the Implementation Plan in 2013 and identified 16 priority objectives, including development of baseline information-sharing capabilities. Source: https://www.gao.gov/products/gao-23-105310 2013-12-31 16 The ISE Implementation Plan identified 16 priority objectives needed to implement the Information Sharing Environment. 2.2.2 Completed Objectives Number _945030dc-a8d4-4ca5-a2b0-dc6d12a48555 GAO reported in 2023 that federal agencies had completed all but three of the 16 priority objectives as of 2017. Source: https://www.gao.gov/products/gao-23-105310 2017-01-01 13 Thirteen of the 16 ISE Implementation Plan priority objectives had been completed by the beginning of 2017. 2.2.3 Objective Completion Percent _7f48cb6d-2c65-47f5-a2a1-0460e38ac85a This percentage is calculated for this performance report and was not reported by GAO as an ISE performance measure. Calculation: 13 / 16 × 100 = 81.25 percent. Source values are reported by GAO at https://www.gao.gov/products/gao-23-105310 2017-01-01 81.25 Approximately 81.25 percent of the 16 ISE priority objectives had been completed by the beginning of 2017. 2.2.4 Remaining Objectives Number _c5a81026-d4a6-4450-a584-fbdf22df7a90 GAO found that agencies had implemented projects addressing the three objectives remaining after 2017 but that, without a Program Manager assessing agency efforts, the amount of work still required could not be determined. Accordingly, no later NumberOfUnits is reported here. Source: https://www.gao.gov/products/gao-23-105310 2017-01-01 3 Three of the 16 ISE Implementation Plan priority objectives remained incomplete at the beginning of 2017. 2.2.5 Performance Visibility ... Status _65720ad0-69e5-42c4-a6d8-17d132cff2ef The descriptor values are analytical characterizations for this performance report based on GAO findings. The sequence illustrates that performance visibility is not necessarily permanent: measurement and accountability capabilities can improve and subsequently deteriorate when supporting governance and assessment mechanisms are not sustained. 2008-06-25 Insufficient GAO found that intended results and performance measures were insufficiently defined to place the ISE on a measurable track to success. 2012-07-31 Improved Performance assessment data and maturity measures provided improved visibility into ISE implementation and remaining work. 2023-06-26 Insufficient GAO found that the absence of a Program Manager to assess implementation efforts left the amount of work required to complete the remaining priority objectives undetermined. Sustainability Sustain and evolve reusable information-sharing standards through open governance, collaborative development, and continuing technical adaptation. _ce5d4f78-0716-4385-889f-74b65a47b389 3 NIEMOpen Open standards project through which the NIEM framework and specifications continue to be governed and developed. Standards Community Performer Beneficiary OASIS Open Standards development organization providing the institutional framework within which NIEMOpen is governed and its specifications are developed and approved. Standards Organization Performer NIEMOpen Sponsors Organizations providing strategic vision, governance, technical guidance, and support for NIEMOpen. Sponsors Performer NIEMOpen Contributors Public-sector, private-sector, nonprofit, international, and individual participants contributing to development and maintenance of NIEMOpen. Contributors Performer Beneficiary Sustainable Information Sharing ~ NIEM evolved from a U.S. government-sponsored program into an OASIS Open Project. OASIS announced in September 2022 that NIEM would transition to NIEM Open, providing expanded participation opportunities for public-sector, private-sector, nonprofit, and international organizations and a path by which NIEM specifications could become formally approved standards. The transition illustrates institutional adaptation intended to preserve and broaden the information-sharing capability beyond its original governmental sponsorship arrangements. ^^ An inferred planning and accountability implication parallels the issue identified under Goal 2. Technical artifacts can persist through changes in organizational stewardship when they are standardized, openly governed, versioned, and maintained. Planning and performance information can benefit from analogous persistence. Machine-readable statements of goals, objectives, stakeholders, indicators, targets, and actual results could help preserve institutional intent and performance history across changes in sponsors, governance structures, personnel, and technology. This implication is analytical rather than an assertion by NIEMOpen or OASIS. Sources: https://www.oasis-open.org/2022/09/14/u-s-government-to-transition-national-information-exchange-model-niem-to-oasis-open/ and https://niemopen.org/about/history/ Governance Broaden participation and sustain NIEM through transparent, collaborative, and internationally accessible standards governance. _f77c453f-049c-4ea0-b596-6df719ed971c 3.1 OASIS Open Standards Organization Performer NIEMOpen Project Governing Board Provides top-level guidance and strategic direction for NIEMOpen. Governance Performer NIEMOpen Technical Steering Committees Direct the day-to-day technical activities of NIEMOpen. Technical Governance Performer Open Standards Governance ~ The transition to OASIS Open was intended to expand governance participation, provide access to established standards-development processes, facilitate alignment with related standards, broaden international participation, and create a path toward recognition of NIEM specifications in national and international policy and procurement. Current NIEMOpen governance is conducted through a Project Governing Board and Technical Steering Committees. Sources: https://www.oasis-open.org/2022/09/14/u-s-government-to-transition-national-information-exchange-model-niem-to-oasis-open/ and https://niemopen.org/about/governance/ 3.1.1 Governance ... Status _14f7a508-1970-4235-b42c-d80142c1d916 The descriptor values are analytical characterizations for this performance report. They capture a substantive change in governance model rather than implying that federal participation ended. Government organizations continue to participate in and sponsor NIEMOpen. 2005-12-31 Federal Partnership NIEM was established through U.S. federal government sponsorship initially centered on the Departments of Justice and Homeland Security. 2023-12-04 Open Standards Governance NIEMOpen was operating as an OASIS Open Project and approved NIEM Model Version 6.0 as an OASIS Project Specification. 3.1.2 Major Releases Number _2e9218b5-8648-45c2-b265-03a12ec49d56 This measure counts major numbered generations 1.0 through 6.0 rather than every major and minor release. NIEM's historical release record includes numerous intermediate releases. Release count indicates continuing maintenance and evolution but does not by itself measure adoption, interoperability, or mission outcomes. Sources: https://niemopen.org/about/history/ and https://www.oasis-open.org/standard/niem-model-v6-0/ 2023-12-04 6 NIEM had progressed through six numbered major release generations, culminating in NIEM Model Version 6.0. 3.1.3 Domains Number _e99abfa8-971a-4329-8756-095655552ff2 NIEMOpen describes Version 5.2 as comprising NIEM Core plus 17 NIEM Domains representing government or industry verticals. Compared with the seven substantive domains identified for NIEM 1.0 in this report, this provides another quantitative indication of expansion in scope. Source: https://www.oasis-open.org/2023/02/17/niem-a-new-open-project-18-years-in-the-making/ 2022-12-27 17 NIEM Version 5.2 contained 17 sets of domain-specific objects in addition to NIEM Core. 3.1.4 Domain Growth Percent _7cb4df67-c63e-4307-83e2-fcb25738b024 This percentage is calculated for this performance report and is not a NIEM-reported performance measure. Calculation: (17 - 7) / 7 × 100 = approximately 142.86 percent. Domain count measures breadth of modeled subject areas, not usage or effectiveness. The NIEM 1.0 date should be refined if an exact authoritative release date is established. 2006-10-01 2022-12-27 142.86 Calculated increase of approximately 142.86 percent in substantive domain count from seven domains in NIEM 1.0 to 17 domains in NIEM 5.2. Evolution Adapt NIEM standards, models, tools, and representations to changing technologies and information-exchange requirements. _613f25ee-eb66-4772-91ad-48244b29dd09 3.2 NIEMOpen Maintains and evolves the NIEM information-sharing framework and model. Standards Community Performer Beneficiary Software Developers Developers using NIEM models, specifications, representations, and tools to implement information exchanges. Implementers Performer Beneficiary Data Architects Practitioners designing interoperable information models and exchange specifications. Implementers Performer Beneficiary Technical Evolution ~ NIEM has evolved technically as implementation technologies and developer practices have changed. Its historical foundation is strongly associated with XML Schema, but subsequent developments included publishing resources through GitHub, providing guidance for JavaScript Object Notation (JSON), supporting linked-data approaches through JSON-LD, establishing predictable release cycles, and introducing the technology-neutral Common Model Format (CMF) in NIEM Version 6.0. ^^ NIEM Version 6 represents a significant architectural evolution. NIEM's Naming and Design Rules state that the NIEM abstract metamodel has equivalent XSD and CMF representations that can be converted without loss. CMF was introduced because XSD directly serves XML developers but does not directly support developers working in JSON and other formats. A CMF model can be transformed into XSD for XML validation and JSON Schema for JSON validation, and CMF itself can be serialized in XML or JSON. ^^ An inferred implication for planning and accountability is that semantic persistence should be distinguished from serialization technology. If planning and performance concepts are expressed through stable, well-defined semantics, they may likewise be represented through multiple technical formats without changing their substantive meaning. This reinforces the potential value of treating planning and accountability information as interoperable data rather than merely as human-readable documents. Sources: https://niemopen.org/about/history/ and https://docs.oasis-open.org/niemopen/ndr/v6.0/ndr-v6.0.html 3.2.1 Releases Number _eb0ff50d-93c8-4685-9684-a34458193893 NIEMOpen's 20-year retrospective reports six major and seven minor releases through Version 6.0. NumberOfUnits records their combined total: 6 + 7 = 13. Release count indicates sustained maintenance and evolution but does not directly measure adoption or mission effectiveness. Source: https://niemopen.org/news/niemopen-a-20-year-legacy-of-information-sharing-and-a-bright-future/ 2025-12-31 13 NIEM had produced six major and seven minor releases through NIEMOpen Version 6.0. 3.2.2 Development Process ... Status _7a048cf9-0544-4014-b551-e0b79eb5ae37 NIEM's historical timeline reports that in 2014 it launched a GitHub site and established a release cycle under which major releases could be expected every three years and minor releases potentially every 12 months. Because the source identifies only the year, December 31 is used here as a reporting-date convention rather than as an asserted event date. Source: https://niemopen.org/about/history/ 2014-12-31 Open Collaborative NIEM established a GitHub presence and a predictable model-release cycle to facilitate community participation and sustainable change management. 3.2.3 JSON Support ... Status _3a6efa36-ab30-42c0-8d3e-e11633979b01 The 2017 NIEM history entry identifies initial JSON guidance. NIEM Version 6 substantially extends technology-neutral support through CMF. The dates use year-end as a reporting convention where source material identifies the year rather than a precise event date. Sources: https://niemopen.org/about/history/ and https://docs.oasis-open.org/niemopen/ndr/v6.0/ndr-v6.0.html 2017-12-31 Initial Guidance NIEM provided initial guidance for using JavaScript Object Notation with NIEM. 2025-12-31 Model Support NIEM Version 6 Common Model Format supported generation of JSON Schema and representation of NIEM models in JSON as well as XML. 3.2.4 Model Representation ... Status _96b927a9-36ac-4355-bddf-35cecd0dc065 The descriptor values are analytical characterizations for this performance report. NIEM Version 6 does not abandon XSD. Rather, XSD and CMF are equivalent representations of the NIEM metamodel and can be converted from one to the other without loss. CMF may be transformed into XSD for XML validation and JSON Schema for JSON validation. Source: https://docs.oasis-open.org/niemopen/ndr/v6.0/ndr-v6.0.html 2006-12-31 XSD-Centered NIEM model representation was based on a profile of XML Schema Definition language. 2025-12-31 Technology-Neutral NIEM Version 6 introduced Common Model Format as an equivalent model representation intended to support XML, JSON, and other developer communities. 3.2.5 Semantic Portability ... Status _49831cb0-8a08-45ac-9343-eab0fc5a8065 NIEM Version 6 specifies XSD and CMF as equivalent representations that can be converted without loss. This performance-report indicator interprets that capability as semantic portability: preservation of model meaning independently of a single serialization technology. The term "Cross-Format" is an analytical descriptor rather than a NIEM-defined performance rating. Source: https://docs.oasis-open.org/niemopen/ndr/v6.0/ndr-v6.0.html 2025-12-31 Cross-Format NIEM Version 6 enabled equivalent model semantics to be represented across multiple implementation formats through the Common Model Format. Planning & Accountability Enable intentions, stakeholders, performance expectations, and actual results to be exchanged, discovered, linked, analyzed, and reused as interoperable information. _9dbbaac9-1487-42ed-b1e7-11f1ad39a8f5 3.3 NIEMOpen Standards community that could consider requirements for interoperable planning and accountability information. Potential Standards Community Performer Beneficiary StratML Community Community supporting standardized machine-readable representation of strategic plans and performance plans and reports. Standards Community Performer Beneficiary John Teeter Former Deputy Chief Information Officer at the U.S. Department of Health and Human Services who proposed inclusion of a Planning and Accountability domain in NIEM. Proponent Performer Planning and Performance Practitioners People and organizations creating, maintaining, evaluating, and using plans and performance reports. Information Providers and Users Performer Beneficiary AI Agents and Information Systems Systems and agents capable of discovering, processing, relating, analyzing, and presenting machine-readable planning and performance information. Information Processors Performer Beneficiary Planning and Accountability Interoperability ~ This objective is an inferred opportunity developed for this performance report. It is not represented as an adopted objective of NIEM, NIEMOpen, OASIS, or the U.S. Government. ^^ John Teeter, while serving as Deputy Chief Information Officer at the U.S. Department of Health and Human Services, proposed inclusion of a Planning and Accountability domain in NIEM. Documentation of that proposal is referenced at https://stratml.us/docs/SMLC2024.xml#_999403c6-52a7-415d-b883-5689ad607112 ^^ StratML provides an existing standardized vocabulary for representing strategic plans and performance plans and reports in machine-readable form. Its purposes include facilitating sharing, referencing, indexing, discovery, linking, reuse, and analysis of planning information and enabling literal linkages among goals, objectives, stakeholders, and related records. StratML Part 2 extends the strategic-plan structure to performance indicators, target results, and actual results. ^^ The historical evidence compiled in this report identifies recurring gaps between information-sharing capability and performance-accountability capability. NIEM adoption itself has not always been comprehensively measurable. GAO found deficiencies in defining and measuring results for the Information Sharing Environment. Performance visibility subsequently improved but later deteriorated when the ISE assessment function was no longer sustained. These findings suggest that interoperability of operational information does not automatically produce interoperability, persistence, or discoverability of information about intentions and results. ^^ An inferred implication is that a Planning and Accountability domain could complement NIEM's operational information-sharing capabilities by providing or referencing common semantics for intentions, stakeholders, objectives, indicators, targets, and actual results. Such information could support automated discovery of common and complementary objectives, identification of prospective performance partners, aggregation and comparison of performance indicators, linkage of operational exchanges to the objectives they support, and preservation of accountability information across changes in personnel and organizational structures. ^^ AI agents, semantic technologies, knowledge graphs, visualization, discovery and matching services, and asynchronous collaboration tools could potentially derive additional value from standardized planning and performance information because machine-readable objectives, stakeholder relationships, and results could be processed and related at scale. These are inferred potential applications rather than claims made by NIEMOpen. ^^ This StratML Part 2 report is itself a proof-of-concept demonstration: historical information concerning NIEM and the broader Information Sharing Environment has been structured as organizations, stakeholders, goals, objectives, performance indicators, and actual results. The exercise also exposes missing, inconsistent, approximate, and noncomparable performance data that would be easier to identify and potentially avoid if planning and reporting information were routinely published in standardized machine-readable form. Sources: https://stratml.us/, https://stratml.us/docs/SMLC2024.xml#_999403c6-52a7-415d-b883-5689ad607112, and sources cited elsewhere in this report. 3.3.1 StratML Files Number Status _97db286f-b102-474a-9cda-c0052642183d NumberOfUnits records the 7,302 StratML files reported by the AboutThem.info statistics service as of September 11, 2026. The number demonstrates the existence of a substantial corpus of machine-readable planning and performance information but does not measure adoption of StratML generally or use of a NIEM Planning and Accountability domain. Source: https://search.aboutthem.info/Statistics 2026-09-11 7302 Increasing 7,302 files were reported in the StratML collection and available for query through the AboutThem.info search service. 3.3.2 Planning Interoperability ... Status _223ae45d-a0bf-4b1a-a7d8-f59b2575811a "Demonstrated" is an analytical descriptor used for this report. It means that standardized machine-readable planning and performance information exists and is being published and processed; it does not mean that a Planning and Accountability domain has been adopted by NIEMOpen. 2026-09-11 Demonstrated StratML provides machine-readable structures for strategic plans and performance plans and reports, and a corpus exceeding 7,000 files demonstrates practical publication and reuse of those structures. 3.3.3 NIEM Integration ... Status _594cd3b9-60af-4f14-a9c4-f29a0734ac9f This indicator deliberately distinguishes demonstrated StratML capability from NIEM adoption. The proposal attributed to John Teeter is documented at https://stratml.us/docs/SMLC2024.xml#_999403c6-52a7-415d-b883-5689ad607112 2026-09-11 Proposed Inclusion of Planning and Accountability capabilities in NIEM has been proposed but is not represented in this report as having been adopted. 3.3.4 Performance Data Completeness ... Status _4f4141b7-9015-4c78-bd0c-a45bb486d64e This is an assessment arising from compilation of this report rather than a source-reported NIEM performance rating. Examples include incomplete historical measures of NIEM adoption, approximate quantities, changes in definitions and scope, unavailable exact dates, and broader information-sharing outcomes for which NIEM-specific attribution cannot be established. The inability to populate complete performance indicators is itself informative evidence concerning the potential value of standardized planning and accountability data. 2026-09-11 Incomplete Compilation of this report required reconstruction of performance evidence from multiple historical sources, and several important measures lacked complete, consistent, or directly comparable longitudinal data. 2026-09-11 https://stratml.us/docs/NISPR.xml Owen Ambur Owen.Ambur@verizon.net