HealthSeptember 22, 2023|UpdatedJune 20, 2025

Understand the four levels of interoperability in healthcare

Discover the critical role of the four levels of healthcare interoperability in fostering seamless communication, improving patient care, and optimizing outcomes.

Before we dive into why interoperability matters, let's start with what it means. According to the Healthcare Information and Management Systems Society (HIMSS), interoperability is “the ability of different information technology systems and software applications to communicate, exchange data, and use the information that has been exchanged.” The key phrase here is: "Use the information that has been exchanged."

What are the four levels of interoperability in healthcare?

So, is our healthcare system interoperable? The answer isn’t simple. Interoperability is complex, which is why HIMSS breaks it down into four levels. Let’s take a quick look at each, and then we’ll explore the challenges of semantic interoperability in more depth. 

1. Foundational interoperability

Foundational interoperability is the most basic level. It allows one health IT system to send data to another. You can think of it as “opening the pipes” so data can flow. FHIR APIs are a good example of this in action. 

2. Structural interoperability

In structural interoperability, the focus is on how data is formatted and exchanged. Also called syntactic interoperability, this level ensures that data is organized in a consistent way, like turning words into sentences. Standards like direct messaging, FHIR implementation guides, and C-CDA are examples of how systems structure the data so it can be interpreted correctly by receiving systems. 

3. Semantic interoperability

Semantic interoperability ensures that the receiving system is not only able to receive the data, but can understand and use it. This is where things get more complex—and more meaningful. That requires standardized, codified data using common vocabularies. 

Scattered, isolated HIT systems that have evolved over the years and employ a range of medical terminologies and nonstandard ways of documenting important clinical details have led to significant barriers in this layer of interoperability. Regulations like the HTI-1 rule that enforce the use of FHIR-enabled APIs and require that the most critical data elements used in patient care be shared using common vocabulary standards have helped to codify those important data elements. Refer to the USCDI for a list of those data and the requisite vocabulary standards.  

What about the data not identified in the USCDI, or that is not easily codified to a single standard? To create actionable, usable data, it needs to be optimized through a process of mapping to an applicable standard or normalizing the data.  This cannot be left up to untrained IT systems, AI, or non-clinical personnel. A data normalization solution allows for apples-to-apples comparisons and aggregation of information from different systems by 1) standardizing local content to common terminology standards and 2) semantically translating data between standards (concept mapping) to eliminate any ambiguity of meaning.  

4. Organizational Interoperability

This final level brings everything together. Organization interoperability includes the governance, policies, and trust frameworks that make interoperability work across organizations. This is where initiatives like the Trusted Exchange Framework and Common Agreement (TEFCA) come into play, emphasizing the importance of trust, privacy, and data governance in enabling seamless, secure data exchange. Data governance is key to achieving organizational interoperability and the path to accelerating outcomes.

The Four Levels of Interoperability in Healthcare

Level Name Definition
1 Foundational Interoperability Basic data transmission
2 Structural Interoperability Standard formats for data exchange
3 Semantic Interoperability Sharing data in context with a common understanding, using standard terminologies
4 Organizational Interoperability Governance and policy frameworks to align organizations

Why semantic interoperability matters in healthcare

Semantic interoperability is a critical component of modern healthcare data exchange. It ensures that health information shared between systems is not only received but also understood and used effectively. Without it, even the most advanced electronic health records (EHRs) can fall short. 

A real-world example: Lessons from Katrina and Harvey 

When Hurricane Katrina struck in 2005, most hospitals in the region still relied on paper records. As floodwaters swept through, countless medical histories—vaccination records, medication details, diagnostic notes—were lost. For displaced families, managing chronic conditions or enrolling children in new schools without access to those records was incredibly difficult.

Fast forward to Hurricane Harvey in 2017, and the picture had improved: about 75% of providers in the Houston area were using electronic health records (EHRs). Patients who stayed local benefited from continued access to their data, but for those who relocated, sharing that information across systems was still clunky, often requiring printed copies or discs. It was progress, but not yet seamless.

That may feel like a long time ago, but the question remains: Have we made real progress since then? Chances are, you or someone you know has experienced a delay in care, repeat testing, or even a medical error because critical patient data wasn’t available when and where it was needed.

How does interoperability impact healthcare?

If those examples aren't convincing enough, here are three key reasons why healthcare interoperability matters:

  • Interoperability speeds patient care
    In emergencies, natural disasters, or routine care transitions, providers need fast access to a patient's medical history, allergies, and treatments. Semantic interoperability ensures that this data is structured, standardized, and usable, leading to faster, safer care.
  • Interoperability helps manage chronic conditions
    Conditions like diabetes require coordinated care across multiple providers. Interoperability allows care teams, including patients and payers, to share data, track progress, and make informed decisions. For data to be actionable, it must be reliable and optimized for clinical outcomes. 
  • Interoperability reduces physician burden
    Administrative tasks like prior authorizations are a major burden. Interoperability, especially through initiatives like the HL7 DaVinci Project, streamlines data exchange between payers and providers, reducing paperwork and freeing up time for patient care. 

Are we there yet? The state of healthcare interoperability in 2025

Interoperability has come a long way, but we’re not there yet.

Foundational interoperability, or getting data from point A to point B, is mostly in place, especially for large organizations that benefited from Meaningful Use incentives. However, many small or rural providers still rely on paper charts.

The next hurdle is structural interoperability, ensuring data is formatted and organized so that different systems can use it. We’ve made progress here, too. Standards like FHIR and CDA are gaining traction, and initiatives like TEFCA are helping unify data exchange across networks.

Still, challenges remain: payer-to-payer communication using FHIR is minimal. While the technical standards exist, the content often falls short, especially for complex clinical use cases like maternal and fetal health. Many providers still use legacy systems that don’t support modern standards. And sectors like behavioral health, public health, long-term care, and rural care often lack the funding or infrastructure to keep up.

And, don’t forget the pharmacists. Pharmacists are key players in patient care, but they’re often left out of the health data loop. Without access to full medical histories or incentives to share clinical insights, their ability to provide safe, informed care is limited. Better integration could unlock their full potential in care coordination, especially for patients managing complex conditions.

The bottom line for healthcare interoperability

In short, we’ve laid the pipes and started organizing the flow, but we still need to clean up what’s coming through them and find ways of aggregating and normalizing data from disparate sources to accomplish the real goal of interoperability: improving patient outcomes.

The team at Health Language is passionate about interoperability in healthcare. We focus specifically around that semantic layer. Our data quality solutions are designed to support providers, payers, and HIT vendors ensure that the data they are leveraging is “translated” into the same language, transforming data into information that can be used to accelerate both organizational and patient outcomes. We enable you to get the most out of your enterprise data with specialized training and tools in an end-to-end data management portfolio of products.

If your team needs support with clinical data governance and normalization, we’d love to help support you! Please reach out – we’d love to connect.

Health Language Data Interoperability
Cheryl Mason
Director, Content and Informatics, Health Language
As the Director of Content and Informatics, Cheryl supports the company’s Health Language solutions leading a team of subject matter experts at that specialize in data quality. Together, they consult with clients across the health care spectrum regarding standardized terminologies, data governance, data normalization, and risk mitigation strategies.
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