The case for a National Interoperability Capstone Course

T
F
A
R
D

Produced for DHS Office of Science & Technology:

Prepared by:
Dennis Cobb, MS
DCC Group, Inc.

DISCLOSURE STATEMENT
This white paper contains information and data that are privileged, confidential, and/or proprietary to DCCG. This information and data are not made available for
public review, and are submitted on a confidential basis; this document was developed as an unsolicited discussion brief and not under the sponsorship of any
contract, grant, or cooperative agreement. The information contained herein is protected, among other things by the Trade Secrets Act, as codified, and any
improper use, distribution, or reproduction is specifically prohibited. No license or right of any kind is granted to any third party to use the information contained
herein unless a written agreement exists between DCCG and the third party who desires access to the information. No other use of the information and data
contained herein is permitted without the express written permission of DCCG. Under no condition should the information contained herein be provided in any
manner to any third party without first receiving the express written permission of DCCG.

Copyright © DCCG ALL RIGHTS RESERVED 2007

Any unauthorized reproduction, disclosure, copying, or other use is strictly prohibited.

5 5 0 0 Vi a R o s a C o u r t , L a s Ve g a s N V 8 9 1 2 8 • t e l e p h o n e : 7 0 2 - 8 1 2 - 0 0 0 0 • d c c g @ m a c . c o m
 DCCG
Use or disclosure of information on this sheet is subject to restrictions on the title page of this document.

Emergency Services Interoperability: The Need for Cross-Cultural Understanding

Communications interoperability—emergency responders’ ability to communicate between disciplines—
is first a technical challenge, yet effective interoperability also includes the need to achieve shared
understanding across emergency service disciplines. As communications equipment becomes ever more
compatible, even across different radio systems and bands, the ability of end-users to share
understanding and realize practical value from interoperability remains inadequate.
Interoperability is commonly discussed as if it results merely from connecting two communications
systems. While a connection is necessary, it is not sufficient to allow practical interoperability. Operational,
“on the street” value from interoperability requires a mutual ability to achieve shared understanding of a
situation through that connection.

If two people are connected by radio, but do not speak a common language, the connection alone cannot
transfer or create understanding. To the contrary, the connection can slow decisions and operations by
creating uncertainty and confusion. Subtle and dangerous misunderstandings also can arise when
speakers share a common language, but use the same words to mean different things.

In a real way, two general difficulties reduce the value of communications connections between
emergency responders in the United States today: The absence of common training and understanding in
planning and using interoperability connections, and a lack of multidisciplinary experience to allow
common understanding with other emergency services during joint operations. Successful joint
emergency services interoperability that works “on the street” requires both
• Knowing what connections you have and how to use them, and
• Knowing what information matters most to other emergency disciplines and how to deliver it.

Emergency services are experts at their particular responsibilities, but often know little of other
responders specialties. Because of this professional ‘isolation,’ the various disciplines have distinct
operational cultures. This is no obstacle to common situations, but in joint operations it can lead to
misunderstandings and errors.

There is no joint training now available to acquaint emergency service professionals with needs,
perceptions, and responsibilities of colleagues in other disciplines. Such training can dramatically
improve the these services’ combined capabilities. Because cultures can take years to change, a real and
urgent need now exists for a National Interoperability Capstone Course (NICC) to train first responders
in building shared understanding through intensive course of study and practice.

Separate Training But Combined Responses for Emergency Services

Current emergency services command courses provide excellent training to first responders across the
United States, preparing them to meet an enormous range of crises. Attendees must be accomplished
professionals, with depth of knowledge and experience in the relevant emergency service, to attend
command schools such as the F.B.I. National Academy, National Fire Academy, and Emergency
Management Institute, and the Noble Training Center.

National Interoperability Capstone Course

2
 DCCG
Use or disclosure of information on this sheet is subject to restrictions on the title page of this document.

The F.B.I. National Academy’s stated goal is “to improve standards, to promote collaboration, and to
ensure effective administration of justice organizations throughout the United States.” The National Fire
Academy’s courses and programs work “to enhance the ability of fire and emergency services and allied
professionals to deal more effectively with fire and related emergencies. The Integrated Emergency
Management Course, offered by the Emergency Management Institute of the Federal Emergency
Management Agency (FEMA), places public officials and emergency personnel in a realistic crisis
simulation within a structured learning environment. The Noble Training Center is the only hospital
facility in the U.S. devoted to training hospital and healthcare professionals in disaster preparedness and
response.

Specific training and exercises in interoperable communications are notably absent from these prominent
single-discipline emergency service training programs. Most instruction in these courses focuses on a
single emergency discipline or environment. None of them offer training focused solely on building
attendees understanding and skill in fundamental interoperability.

An opportunity exists for an overarching course filling the need for intensely focused training in effective
cross-discipline communications and operations. This need can be filled with a National Interoperability
Capstone Course - a culminating training experience for accomplished emergency service professionals to
increase knowledge, understanding, and ability to communicate effectively with other public safety
disciplines.

A National Academy for Interoperability

A National Interoperability Capstone Course is the appropriate, efficient, and necessary step to build
common understanding and interoperability among emergency services professionals. Even as
technology rapidly improves connections between first-responder technologies, the operational ability to
build shared understanding during crises lags ever farther behind. This sets the stage for a tragedy of
enhanced expectations due to better connectivity combined with failure to understand crucial
information because of different meanings to emergency responders sharing that connection.

The United States military recognized the value of shared understanding in crisis operations more than 30
years ago. In 1982, the General and Flag Officer Course known as CAPSTONE was created with participation
on a voluntary basis. In 1986, the U.S. Congress endorsed the value of this approach and made CAPSTONE
mandatory with the Goldwater-Nichols DoD Reorganization Act.

The Goldwater-Nichols act required all newly selected general and flag officers to attend CAPSTONE.
The stated objective is to make leaders more effective in planning and employing US forces in joint and
combined operations. CAPSTONE’s curriculum examines major issues affecting national security decision
making, military strategy, joint/combined doctrine, interoperability, and key allied nation issues.

National Interoperability Capstone Course

3
 DCCG
Use or disclosure of information on this sheet is subject to restrictions on the title page of this document.

The successful precedent of CAPSTONE shows the potential value of cross-familiarizing professionals from
emergency disciplines. Like CAPSTONE, the National Interoperability Capstone Course would differ from
single-discipline, skill-based training in three major ways:

1. The NICC experience will focus solely on collaborative operations of emergency services in local,
regional and state joint operations.
2. NICC exercises will provide multiple opportunities for personal interaction and shared
operational experience between operational commanders of emergency services. The courses will
exercise at multiple locations to offer emergency service commanders first-hand experience in
other disciplines.

3. NICC participants will be referred to as “Fellows” rather than “students” or “attendees” because
of the unique nature of the course and the special expertise and qualifications brought to each
class by those attending.

Besides improving local, regional, tribal, and state capabilities for practical and effective communications,
a National Interoperability Capstone Course offers the United States government a rare opportunity to
interact with local professionals in a joint discipline training setting. Federal and national resources rarely
used and poorly understood by operational commanders, such as the range of support available from the
National Communications Service and the National Preparedness Service.

The National Interoperability Capstone Course would be a visible, beneficial overlap for the DHS
directorates for National Protection & Programs (NPP) and the Science & Technology (ST). Both ST’s
Office of Emergency Communications (OEC) and NPP’s Office for Interoperability and Compatibility (OIC) are
natural sources for NICC curriculum support, and logical consumers of lessons and perspectives of NICC
Fellows. OIC’s SAFECOM program could preview and evaluate guidance, tools and templates. The OEC
would have a natural “consumer’s lab” for input and feedback on its research, development, testing,
evaluation, and standards efforts. 

Building on Existing National Programs

The National Fire Academy offers over 40 one-week and two-week resident courses in 12 curriculum
areas on its campus in Emmitsburg, MD. None focus on teaching firefighters how to communicate
effectively with other public safety disciplines. A similar vacancy appears in the curriculum of other
national-level public safety professional training schools.

The NICC pilot course would occur in multiple locations near the national capital. Later classes could use
other facilities advantageous to the training mission, effectiveness, or efficiency. The course syllabus
would begin with an overview of interoperability—history, current state, and anticipated progress. After
an initial two-day familiarization with technical aspects radio interconnectivity, the remainder of the
course will emphasize, illustrate, and develop skills of participants in using connectivity to build a
multidisciplinary shared understanding during crises.

National Interoperability Capstone Course

4
 DCCG
Use or disclosure of information on this sheet is subject to restrictions on the title page of this document.

Methods of instruction will include presentation and discussion, case studies, classroom and field
exercises, and visits to emergency services operations centers and training facilities.

Initiation, Governance, and Continuance

The National Interoperability Capstone Course could begin as a pilot course under either the Office of
Emergency Communications or Office of Interoperability & Compatibility. Because both the “hardware”
and “software” aspects of interoperability would be part of the course of instruction, both NPP and ST
will have roles to play, and benefits to be gained, in the program.

A professional project manager working with an interdepartmental DHS working group would develop
the pilot NICC class over 120 days. That initiation group would monitor delivery of training to the first
NICC class over 21 days. This initial class development process would establish the initial charter, goals,
objectives and milestones, and metrics for the pilot class.

Fellows would attend the pilot NICC course free of charge, with their home agencies paying only for
attendee’s salaries during the three weeks of instruction. For the first class, pre-tests, post-tests, process
validation and capturing lessons learned will all be emphasized along with providing valuable
interoperability lessons to the NICC Fellows.

As benefits of the training are documented in the pilot and any subsequent classes, the U.S. Department
of Homeland Security will be able to make determinations on seeking continuation funding in the federal
budget process. Costs can be centered in DHS through selection of Department facilities and venues, or if
desirable, shared across other entities (such as the Defense Department) where inclusion of those entities’
facilities or services is beneficial to the course.

Continuation of the National Interoperability Capstone Course program will require a multidisciplinary
training staff for the first several courses. As the number of NICC graduates increases, the DHS could
invite alumni as adjunct instructors to ensure current operational perspectives in the training, provide
further professional development to alumni, and limit full-time staff required to accomplish the mission.
As the curriculum and procedures are finalized, the continuation and maintenance of the program can be
contracted out and the initial interdepartmental working group can become a permanent governance
committee.

Eventually, outside directors from the NFA, FBINA, OIC, OEC, IACP, and IAFC are certain to become
beneficial to the governance process. The governance committee can migrate to the role of directors and
add directors when appropriate.

NICC Participants
National Interoperability Capstone Course Fellows would be drawn from professional emergency service
school, and military officer training, alumni. Graduation would be a prerequisite for attending the NICC,
and selection of each class would be managed by a committee assigned. Foreign participation would be
allowed where the attendee also met the alumni status requirement.

National Interoperability Capstone Course

5
 DCCG
Use or disclosure of information on this sheet is subject to restrictions on the title page of this document.

The first class of NICC Fellows for the pilot course would be assembled from recommendations from
State Interoperability Executive Committees throughout the United States. The interdepartmental
working group would select 40 Fellows for the pilot with the remaining nominees as alternate attendees.
Nominees not selected for the pilot course would receive the first offers for places in subsequent classes.

Additional partners in class selection and developing this critical national training initiative might
include the International Association of Fire Fighters (IAFF); the Naval Post Graduate School (NPS); the
National Sheriff's Association (NSA); International Association of Fire Chiefs (IAFC); International
Association of Campus Law Enforcement Administrators (IACLEA); and International Association of
Chiefs of Police (IACP).

Pilot Program Outcomes

The National Interoperability Pilot class will produce:

• NICC Fellows able to guide policy and practice in their agency to improve joint operations
capabilities in their communities.

• Tested and exercise-validated improvements in NICC Fellow abilities to use interoperable

connections to build shared understanding between disciplines in simulated crises.

• A trained, experienced nucleus of interoperable-capable professionals available to government

for professional advice and opinion.
• A Lessons Learned Report on the National Interoperability Capstone Course process, permitting
rapid improvement for subsequent classes.

National Interoperability Goal:

Mid-level and upper-level emergency service commanders in local, state, tribal and national agencies
throughout the United States who understand, and can effectively use, joint communications to achieve
common goals with other emergency service disciplines.

National Interoperability Capstone Course Objectives:

• Build emergency service commanders’ multidisciplinary crises communication effectiveness.
• Improve commanders’ understanding of emergency service responsibilities, capabilities, and
constraints.

• Create a professional emergency services joint communications culture.

National Interoperability Capstone Course Curriculum:

The National Interoperability Capstone Course curriculum will examine major issues affecting emergency
services incident command, including decision-making, effective joint procedures, organizational culture
and communications interoperability. Lessons from this study will be applied by NICC Fellows in
command and operations exercises demonstrating key aspects of combined organizational effectiveness
in emergencies. The training will end with a seminar on capturing and sharing lessons learned, and joint
policy-making for effective interoperability.

National Interoperability Capstone Course

6
 DCCG
Use or disclosure of information on this sheet is subject to restrictions on the title page of this document.

Learning Objectives - The overall objectives of NICC education are:

• Understanding of interoperable emergency command processes, including integration of federal
capabilities to support local and regional crises response capabilities (including MACS and
effective implementation of the National Incident Management System).
• Improved ability to understand crisis response from a multidisciplinary perspective and
communicate effectively with other emergency service disciplines.
• Awareness of joint and multi-jurisdictional capabilities, and how they are best combined to attain
emergency service objectives.
• Awareness of how joint and multi-jurisdictional communications and information systems may
be effectively operated to support regional operations.
• Improved understanding of joint policies and procedures and their value in joint crisis response.
• Understanding of the practical and administrative relationships involved in improving and
sustaining interoperable capabilities, including policy and practice within disciplines.

Course Methodology - National Interoperability Capstone Course training is presented in four ways:
• Classroom seminars address the understanding of interoperability, organizational culture, key
issues affecting emergency service leaders during crisis response. These are provided through
classroom presentations by current and former emergency services commanders, experienced
communications technology trainers, local political figures, media professionals, classroom
discussions, and crisis decision exercises.
• Local area studies are conducted in the Washington area to achieve familiarity and understanding
between emergency services. Fellows study at the National Defense University, National Fire
Academy, and F.B.I. Academy and visit other sites as appropriate and available.
• NICC Fellows visit emergency services provider command and operational facilities in the
Washington area.
• A combined operations command exercise is conducted at least once a week at locations to be
determined to provide joint experience in communicating effectively for responding, planning,
mitigating, and demobilizing multi-agency crisis responses. The learning strategy is built around
a group interaction leading to full group exercises emphasizing critical joint emergency service
communications issues and lessons learned. Experienced emergency service commanders and
various subject matter experts will support the Fellows in their efforts.
The course requires committed involvement from each NICC Fellow through participation in, or
leadership of, seminars, discussions, and the exercises. There are many opportunities for each Fellow to
share expertise and experiences with other participants. The NICC does not include formal writing or
research assignments. Readings are modest in scope and are meant to illuminate issues under discussion.
Fellows do present a group overview of their exercise experiences.

Presentations by guest speakers, seminar leaders, and panelists, including public officials and scholars,
constitute an important part of the curricula. To allow guests (as well as faculty and others) freedom to
speak candidly, the NICC assures their presentations will be held in confidence. This derives from a
policy of non-attribution which is morally binding on all who attend. Without the expressed permission
of a guest speaker, nothing they say will be attributed to them directly or indirectly in the presence of
anyone not authorized to attend the presentation.
National Interoperability Capstone Course

7
 DCCG
Use or disclosure of information on this sheet is subject to restrictions on the title page of this document.

Classroom Seminars - Classroom presentations by guest lecturers examine topics such as:
• Overview
• History
• NIMS/MACS
• Policy Formulation  
• Emerging Interoperability Issues
• Exercise & Testing
• Joint Emergency Service Operations
• System Integration
• Acquisition & Sustainment

Local Area Field Studies - The objective of local area studies is to improve Fellows understanding of other
emergency service disciplines in the Washington area. Emphasis is on meeting with the operational
commanders. Local area studies are spread throughout the course. Visits would include a variety of
emergency disciplines. Specific locations and agencies visited would be arranged as the class dates are
scheduled to support host agency and NICC needs.

Regional Exercise Participation & Observation

Combined Operations Command Exercises - Combined Emergency Services Operations Exercises
(CESOE) occur once in each week of the NICC.  The purpose is to enhance Fellows’ comprehension of,
and appreciation for, joint doctrine through a program of instruction using combined emergency response
as the training vehicle. The learning strategy is built around small group discussion and full group
exercises offering participants the chance to perform roles of other disciplines in emergency responses. 
Experienced emergency service commanders and various subject matter experts will support the Fellows
in their efforts.

National Interoperability Capstone Course

8
 DCCG
Use or disclosure of information on this sheet is subject to restrictions on the title page of this document.

NICC Pilot
Course Syllabus
(conceptual)
Class 1, 2008

Course: Emergency Service Joint Interoperability Capstone

Agency: US Department of Homeland Security
Office: Building [TBD], Room [TBD]
Office Hours: 06:30-08:30 and 16:00-17:30 M-F; Available by cell phone 24/7.
Office Phone: xxx-xxx-xxxx
E-mail Addresses:
johndoe@nia.dhs.gov
johndoe@aol.com (weekends and holidays)
Web Page:
http://nia.dhs.gov
Course Page:
http://nia.dhs.gov.pilot
Classroom Hours:
5:30-7:50 M-F

Introduction
What exactly do we mean by “interoperability”? You may have a clear picture in mind, but how do you know
whether the meaning is the same for emergency services professionals from other agencies and disciplines?

The National Interoperability Capstone Course will place you in the company of accomplished emergency services
professionals to build a common understanding of what interoperability is, and how to use it effectively. In both
classroom and exercise settings, you will have the opportunity to understand what information is vital to your first
responder colleagues, and to provide that information in effective ways that benefit joint agency effectiveness. You
will also build awareness of the most practical way to request information from other disciplines and agencies to
gain details you need to make the most effective leadership decisions available during an emergency.

Week One
NICC will begin with a tabletop exercise with participants working within their professional fields. The remainder
of week one will be spent in seminars and group discussions on:
History and cultures of first responder disciplines
Basics of public safety radio technology - past, present and future
Case review of emergency services interoperability experiences
NIMS as a tool for effective multi-agency collaboration & communication
Cross disciplinary exercises with NICC Fellows playing roles outside their professional fields

Week Two
NICC uses the results of the prior week’s exercises to build awareness and understanding of gaps and opportunities
for improved understanding in interoperable environments. Common elements of emergency command are
examined from a variety of emergency service perspectives, offering NICC Fellows the chance to understand the
needs of other commanders in joint-discipline responses. Joint-planning and policy development seminars and
exercises will build the skill of NACC Fellows in preparing their agencies to be most effective in joint operations.
NICC Fellows will participate in exercises in planning and policy development in both their own fields and in the
role of other emergency service disciplines, including commanding and serving in roles outside their own field.

Week Three
NICC will focus on building NACC Fellows’ skills in free-play exercises, with particular emphasis on effective
After Action Review processes to identify gaps and opportunities in joint operations. The focus of the week is to

National Interoperability Capstone Course

9
 DCCG
Use or disclosure of information on this sheet is subject to restrictions on the title page of this document.

prepare the Fellows for leadership in furthering and strengthening practical interoperable communications in their
home environments. Week Three will include visits to emergency services near the course.
Requirements
National Interoperability Capstone Course Fellows are expected to come from operational leadership levels of their
agencies that would tend to place them in the role of agency representative in multidisciplinary incidents. Fellows
will attend all classes and seminars in business casual attire unless otherwise instructed.

Conduct
As representatives of their professional field and agency, they are expected to conduct themselves earnestly and
respectfully both during the training and after hours during their stay at the NICC. Disrespectful or disruptive
conduct may result in removal from the class.

Grading
The NICC is not graded. It is a professional exchange of ideas and experience as much as a course of instruction,
and Fellows are anticipated to contribute as peers rather than merely listen as students. A certificate of NICC
graduation will be given to Fellows upon completion of the NICC and continued involvement and contribution as
alumni is encouraged.

Staff Assistance
NICC staff will be available 24 hours a day during the course, and general questions or issues will be addressed
during morning briefings before beginning the day’s activities.

Materials
Fellows will be provided all necessary materials for the NICC.
NICC staff will be available 24 hours a day during the course, and general questions or issues will be addressed
during morning briefings before beginning the day’s activities.

Materials
Fellows will be provided all necessary materials for the NICC.

National Interoperability Capstone Course

10