Under the National Earthquake Hazards Reduction Program (NEHRP), four federal agencies have responsibility for long-term earthquake risk reduction: The National Earthquake Hazards Reduction November 17, 2021 Program (NEHRP): Issues in Brief Linda R. Rowan The National Earthquake Hazards Reduction Program (NEHRP) aims to understand earthquake Analyst in Natural hazards and reduce earthquake risks in the United States. Portions of all 50 states, as well as U.S. Resources Policy territories and the District of Columbia, are vulnerable to earthquake hazards and their associated risks, to varying degrees. Each region’s risk is shaped by the frequency and scale of the hazard as well as by the population, infrastructure, and economic activity vulnerable to the hazard. Alaska is the most earthquake-prone state; it has experienced a magnitude 7.0 earthquake almost every year and a magnitude 8.0 earthquake every 13 years, on average, since 1900. Alaskan earthquakes can trigger damaging tsunamis, which can be particularly threatening for Alaska, Washington, Oregon, California, and Hawaii. California has the greatest earthquake risk, because the state has frequent earthquakes that affect a dense built environment and a large population. The 1994 magnitude 6.7 Northridge earthquake in Los Angeles, Ventura, Orange, and San Bernardino counties is the third-costliest disaster in the United States. Congress created NEHRP as a coordinated program through the Earthquake Hazards Reduction Act of 1977 (P.L. 95-124) and most recently reauthorized the program in 2018 (P.L. 115-307). Four federal agencies have responsibilities related to earthquake hazards and risk reduction—the U.S. Geological Survey (USGS), the National Science Foundation (NSF), the Federal Emergency Management Agency (FEMA), and the National Institute of Standards and Technology (NIST). Congress assigned NIST as the lead agency for NEHRP in 1990. These agencies perform the four major NEHRP activities: 1. Develop effective measures for earthquake hazards reduction 2. Promote the adoption of earthquake hazards reduction measures 3. Improve understanding of earthquakes and their effects 4. Continue the development of the Advanced National Seismic System, a nationwide network of seismic stations operated by the USGS The 2018 NEHRP reauthorization did not change the program’s overall structure but did establish new priorities. For example, the legislation emphasized advancing earthquake early warning systems and promoting community resilience to earthquakes. An earthquake early warning system is to detect the start of an earthquake and immediately send an alert that intense and potentially damaging ground shaking will reach a nearby location within seconds to minutes of the alert’s receipt. Various actions can enhance community resilience, such as building earthquake-resistant structures based on a location’s seismic hazard and designing structures for functional recovery, meaning the structures can be reoccupied and can function after an earthquake. Since the 2018 reauthorization, NEHRP has made progress on warning, resilience, and research, among other activities. An earthquake early warning system called ShakeAlert operates in California, Oregon, and Washington, providing actionable alerts to protect people and property from earthquake damage. NIST and FEMA have supplied information and tools to build and retrofit structures for greater earthquake resistance and for functional recovery. NSF and the USGS have continued to support research and have initiated new research opportunities that are coordinated across NSF directorates or across agencies. Issues for Congress regarding NEHRP include the program’s effectiveness (i.e., how much and how well NEHRP reduces risks), the effectiveness of federal and nonfederal partnerships (i.e., how well the four agencies work together and with other partners), and the effectiveness of program management (i.e., how well the agencies plan, manage, and implement program objectives). Two reports underway in December 2021 may inform congressional deliberations related to NEHRP and consideration of extending the program’s authorization of appropriations beyond FY2023. The first report is by the Government Accountability Office (GAO); P.L. 115-307 required GAO to review and report to Congress on NEHRP’s costs and benefits to assess the program’s effectiveness. The second report, also required by the 2018 act, is a strategic plan for NEHRP crafted by the program’s Interagency Coordinating Committee. Congressional Research Service link to page 6 link to page 8 link to page 8 link to page 9 link to page 10 link to page 10 link to page 11 link to page 11 link to page 13 link to page 13 link to page 14 link to page 15 link to page 15 link to page 8 link to page 5 link to page 5 link to page 12 link to page 16 The National Earthquake Hazards Reduction Program (NEHRP): Issues in Brief Contents Major Changes to NEHRP Since 1977 ............................................................................................ 3 NEHRP Reauthorization Act of 2018 (P.L. 115-307) ...................................................................... 5 Changes to Findings, Purposes and Definitions (Section 2) ..................................................... 5 Changes to Program Activities and Agency Responsibilities (Section 3) ................................. 6 Review of NEHRP (Section 4) .................................................................................................. 7 Seismic Standards (Section 5) ................................................................................................... 7 Management of Advanced National Seismic System (Section 6) ............................................. 8 Authorization of Appropriations (Section 7) ............................................................................. 8 NEHRP Progress Since Reauthorization in 2018 .......................................................................... 10 Earthquake Early Warning: ShakeAlert .................................................................................. 10 Reoccupancy Recommendations and Building Codes ............................................................. 11 Basic Research ........................................................................................................................ 12 Issues for Congress ........................................................................................................................ 12 Figures Figure 1. NEHRP Agency Responsibilities and End Users of NEHRP Products............................ 5 Tables Table 1. National Earthquake Hazards Reduction Program (NEHRP) Agencies: Roles and Activities ...................................................................................................................................... 2 Table 2. Enacted Funding for NEHRP, FY2005-FY2021, and FY2022 Budget Request ............... 9 Contacts Author Information ........................................................................................................................ 13 Congressional Research Service link to page 5 The National Earthquake Hazards Reduction Program (NEHRP): Issues in Brief he United States is vulnerable to earthquake hazards and their associated risks,1 although hazards and risks vary greatly across the nation and its territories. Earthquake hazards are TFederal Emergency Management Agency (FEMA), and the National Institute of Standards and Technology (NIST). These agencies assess U.S. earthquake hazards, deliver notifications of seismic events, develop measures to reduce earthquake hazards, and conduct research to help reduce overall U.S. vulnerability to earthquakes. Congressional oversight of the NEHRP program encompasses how well the four agencies coordinate their activities to address the earthquake hazard. Better coordination was a concern that led to changes to the program in legislation enacted in 2004 (the National Earthquake Hazards Reduction Program Reauthorization Act of 2004; P.L. 108-360; 42 U.S.C. 7704).

Portions of all 50 states and the District of Columbia are vulnerable to earthquake hazards,¹ although risks vary greatly across the country and within individual states.² Seismic hazards are greatest in the western United States, particularly in California, Washington, Oregon, greatest in the western United States, particularly in California, Washington, Oregon, Alaska, and Hawaii. Alaska is the most earthquake-prone state, experiencing a magnitude 7; it has experienced a magnitude (M) 7.0 earthquake almost every year and a magnitude 8M8.0 earthquake every 13 years, on average, since 1900.2 Despite being the most earthquake-prone state, because of Alaska’s small1900.³ Because of its low population and low infrastructure density, most of the state of Alaska has a relatively low risk for large economic losses from an earthquake. In contrast, a larger portion of California has moregreater earthquake risk than any other stateAlaska, because of itsCalifornia’s frequent seismic activity, large population, and extensive infrastructure.3 The most damaging earthquake and the third-costliest natural hazard event in the United States was the 1994 M6.7 Northridge earthquake in the Los Angeles metropolitan region, which caused 60 fatalities, more than 7,000 injuries, 20,000 displaced people, more than 40,000 damaged buildings, and an estimated economic loss of $20 billion.4 Since 1977, theinfrastructure. However, on November 30, 2018, a magnitude 7.0 earthquake struck just north of Anchorage, AK, causing extensive damage.⁴

The federal government has supported efforts to assess and monitor earthquake hazards and riskto reduce related risks in the United States underthrough the National Earthquake Hazards Reduction Program (NEHRP) since 1977. Four federal agencies responsible for long-term . The four major NEHRP activities are (1) develop effective measures for earthquake hazards reduction; (2) promote the adoption of earthquake hazards reduction measures; (3) improve understanding of earthquakes and their effects; and (4) continue the development of the Advanced National Seismic System (ANSS), a nationwide network of seismic stations. Today, four federal agencies responsible for earthquake risk reduction coordinate their activities under NEHRP

• : the U.S. Geological Survey (USGS);
• , National Science Foundation (NSF);
• , Federal Emergency Management Agency (FEMA);, and and
• National Institute of Standards and Technology (NIST). For an overview of each agency’s responsibilities, see Table 1. 1 Hazard is not the same as risk. Hazard is a source of danger, whereas risk is the possibility of loss or injury. Earthquake hazard is related to an earthquake causing intense ground shaking and other damaging effects. The degree of earthquake hazard is related to the probability of certain damaging effects caused by an earthquake occurring within a certain period. The degree of earthquake risk is the combination of the degree of earthquake hazard and the extent of the affected population (which includes the infrastructure supporting that population). Large population centers would therefore be at a higher risk than small population centers for the same degree of earthquake hazard, in general. In U.S. Congress, House Committee on Science and Technology, Earthquake Hazards Reduction Act of 1977, report to accompany H.R. 6683, 95th Cong., 1st sess.95-286, part 1, May 11, 1977, p. 3, Congress defined earthquake hazard reduction as “reducing by any available methods the harm done by earthquakes,” so the intent of Congress is to reduce risks of earthquake hazards. 2 State of Alaska, Alaska Seismic Hazards Safety Commission, “Earthquake Risk in Alaska,” at http://seismic.alaska.gov/earthquake_risk.html. 3 For estimates of earthquake hazards and risks displayed on maps divided into states—and the significant hazards and risks in California, in particular—see the 2018 update of the USGS’s National Seismic Hazard Map. The USGS, Earthquake Hazards, “Seismic Hazard Maps and Site-Specific Data,” at “ https://www.usgs.gov/natural-hazards/earthquake-hazards/seismic-hazard-maps-and-site-specific-data; and Federal Emergency Management Agency (FEMA), Hazus Estimated Annualized Earthquake Losses for the United States, FEMA P-366, April 2017, Figure E-1. 4 The USGS, “Impact Summary,” at https://earthquake.usgs.gov/earthquakes/eventpage/ci3144585/impact. Congressional Research Service 1 link to page 5 link to page 5 link to page 5 link to page 5 link to page 5 link to page 5 link to page 5 link to page 5 The National Earthquake Hazards Reduction Program (NEHRP): Issues in Brief Table 1. National Earthquake Hazards Reduction Program (NEHRP) Agencies: Roles and Activities Agency Roles and Activities NIST  Is the lead agency for NEHRP and coordinates NEHRP activities  Conducts applied earthquake engineering research to provide the technical basis for building codes, standards, and building practices  Is responsible for research and development to close the gap between research and implementation of earthquake risk mitigation technologies FEMA  Assists other agencies and private-sector groups to prepare and disseminate building codes and practices for structures and lifeline infrastructure  Aids development of performance-based codes for buildings and other structures  Supports communication of earthquake early warning alerts via the Integrated Public Alert and Warning System and Wireless Emergency Alertsa USGS  Provides earthquake monitoring and notification, earthquake hazards assessments, earthquake hazards maps, and earthquake research  Operates the Advanced National Seismic System (ANSS), regional geodetic networks, and the National Earthquake Information Center (NEIC) to provide earthquake understanding, information, warning, and responseb NSF  Supports basic research in the earth sciences, engineering, and social sciences to understand earthquakes, their hazards, and their risk reduction  Supports additional engineering research through the Natural Hazards Engineering Research Infrastructure (NHERI),c additional earth science research through the Seismological Facilities for the Advancement of Geoscience (SAGE) and the Geodetic Facilities for the Advancement of Geoscience (GAGE),d and additional social science research through the Natural Hazards Center (NHC)e USGS and  Together, support the Global Seismographic Network (GSN),f regional networks, the NSF Southern California Earthquake Center,g earthquake research, earthquake early warningh, post-earthquake assessments, and education and outreach Source: Activities summarized from NEHRP’s website under, “About Us,” at https://www.nehrp.gov/about/agencies.htm. Notes: FEMA = Federal Emergency Management Agency; NIST = National Institute of Standards and Technology; NSF = National Science Foundation; USGS = U.S. Geological Survey. a. See FEMA, “Integrated Public Alert & Warning System,” at https://www.fema.gov/emergency-managers/ practitioners/integrated-public-alert-warning-system; and FEMA, “Wireless Emergency Alerts,” at https://www.fema.gov/emergency-managers/practitioners/integrated-public-alert-warning-system/public/wireless-emergency-alerts. b. For more information about ANSS, NEIC, GSN, and other USGS earthquake monitoring efforts see the USGS, Earthquake Hazards, “Monitoring,” at https://www.usgs.gov/natural-hazards/earthquake-hazards/monitoring. c. See NSF’s NEHRI description at NSF, “Natural Hazards Engineering Research Infrastructure (NHERI),” at https://beta.nsf.gov/funding/opportunities/natural-hazards-engineering-research-infrastructure-nheri. d. See NSF’s SAGE description at NSF, Incorporated Research Institutions for Seismology, “NSF Makes 5-Year $93M Award to IRIS to Manage the SAGE Facility,” press release, at https://www.iris.edu/hq/news/story/ nsf_makes_5_year_93m_award_to_iris_to_manage_the_sage_facility; and NSF’s GAGE description at UNAVCO’s “GAGE Facility,” at https://www.unavco.org/what-we-do/gage-facility/. e. See NSF’s NHC description at Natural Hazards Center at https://hazards.colorado.edu/. f. See the USGS’s GSN description at the USGS, “GSN—Global Seismographic Network” https://www.usgs.gov/natural-hazards/earthquake-hazards/gsn-global-seismographic-network. g. For more information about the Southern California Earthquake Center, see https://www.scec.org. h. For more information about the earthquake early warning system operating in Washington, Oregon, and California, see the ShakeAlert website at https://www.shakealert.org. Congressional Research Service 2 The National Earthquake Hazards Reduction Program (NEHRP): Issues in Brief Major Changes to NEHRP Since 1977 In 1977, Congress passed the Earthquake Hazards Reduction Act (P.L. 95-124), establishing NEHRP as a coordinated earthquake hazards reduction program for the United States.5 The legislation directed the President to establish a program to advance the following objectives:  Development of earthquake-resistant construction  Earthquake prediction and identification and assessment of seismic hazards  Development and promotion of model codes for land use and building  Development of earthquake preparedness, warning, response, and recovery  Development of research to increase earthquake hazards and risks knowledge to reduce risks, deal with prediction consequences, assure insurance availability, and control seismic events The law authorized appropriations for the USGS and NSF to carry out these objectives. Beyond these specific authorizations, Congress did not identify a lead agency or specific activities for other agencies. FEMA was created in 1979; in 1980, Congress amended the Earthquake Hazards Reduction Act in P.L. 96-472 to make FEMA the lead agency. Since 1980, NEHRP has been a coordinated program of four agencies: the USGS, NSF, FEMA and NIST (formerly National Bureau of Standards). In 2004, Congress designated NIST the lead agency for NEHRP in the National Earthquake Hazards Reduction Program Reauthorization Act of 2004 (P.L. 108-360). The USGS and NSF roles in NEHRP initially focused on research to understand and predict earthquakes. However, earthquake prediction proved insoluble,6 and NEHRP shifted its focus beginning in 1990 to understanding, monitoring, assessing, issuing early warnings,7 and responding to earthquakes. Congress removed language related to earthquake prediction in the National Earthquake Hazards Reduction Program Reauthorization Act of 2018 (P.L. 115-307). Congress reauthorized NEHRP in 1990, 1997, 2000, and 2004 and changed the program’s emphasis and oversight in various ways, as detailed below. 5 Congress emphasized a coordinated program in the Earthquake Hazards Reduction Act (P.L. 95-124). It also requested management, budget, and implementation plans to explain how the program would carry out its objectives and to define the roles and responsibilities of federal agencies involved in the program. P.L. 95-124 directed the President to establish the program to include the USGS, NSF, Department of Defense, Department of Housing and Urban Development, National Aeronautics and Space Administration, National Oceanic and Atmospheric Administration, National Bureau of Standards, Energy Research and Development Administration, Nuclear Regulatory Commission, and National Fire Prevention and Control Administration. Congress also called for coordination and cooperation with state and local governments in P.L. 95-124; this directive remains part of the statute. 6 See, for example, the USGS, “Can You Predict Earthquakes?,” at https://www.usgs.gov/faqs/can-you-predict-earthquakes?qt-news_science_products=0#qt-news_science_products. 7 The National Earthquake Hazards Reduction Program (NEHRP) shifted its focus from predicting earthquakes to issuing a warning after an earthquake is detected in the 1990s. Congress’s initial, prediction-focused definition of earthquake warning in P.L. 95-124 arose because China had predicted and evacuated over a million people about five hours before a damaging earthquake struck on February 4, 1975 (see the USGS, Earthquake Hazards Program, “Repeating Earthquakes,” at https://earthquake.usgs.gov/learn/parkfield/eq_predict.php) and because research suggested prediction and imminent warning for earthquakes might be feasible. H. Rpt 95-268, Part 1, stated, “As defined in the act, an earthquake prediction is a prediction, in definite or probabilistic terms, of the time, place, and magnitude of an earthquake, whereas an earthquake warning means a recommendation that normal life routines should be changed for a time because an earthquake is believed imminent.” However, to date, there is no feasible way to provide an earthquake prediction or a warning that an earthquake is imminent. Today, the terms earthquake warning and earthquake early warning typically are defined as a warning that damaging ground shaking may reach a warned location within seconds to minutes after an earthquake has been detected as starting. Congressional Research Service 3 link to page 6 The National Earthquake Hazards Reduction Program (NEHRP): Issues in Brief  In 1990, the National Earthquake Hazards Reduction Program Reauthorization Act (P.L. 101-614) directed the USGS to study faults and earthquakes to determine earthquake frequency, provide a seismic hazards assessment, and conduct research and development for earthquake-resistant structures. The amendments directed the USGS to establish a Center for International Exchange of Earthquake Information, operate a National Seismic Network, continue work on earthquake prediction, and conduct post-earthquake investigations with NSF. The law directed NIST to develop seismic standards for buildings and lifelines (i.e., essential utility and transportation systems).8 It established a NEHRP Advisory Committee until September 30, 1993, to report on NEHRP activities and advise the program.9 The act directed the Office of Science and Technology Policy (OSTP) to study and report on interagency collaboration.  In 1997, P.L. 105-47 amended NEHRP to (1) direct the USGS to develop a prototype real-time seismic warning system,10 (2) allow NSF to use competitive grants to develop earth science education materials for kindergarten through 12th grade, and (3) request FEMA to study and assess national earthquake emergency training capabilities.  In 2000, P.L. 106-503 amended NEHRP to (1) direct the USGS to establish an Advanced National Seismic Research and Monitoring program and a Scientific Earthquake Studies Advisory Committee and (2) direct NSF to establish the George E. Brown Jr. Network for Earthquake Engineering Simulation (NEES) program to research earthquakes’ effects on structures and to develop improved designs for earthquake-resistant structures.11  In 2004, Congress enacted P.L. 108-360 and established an Interagency Coordinating Committee (ICC) and an Advisory Committee on Earthquake Hazards Reduction (ACEHR).12 The ICC consisted of the USGS, NSF, FEMA, NIST, OSTP, and the Office of Management and Budget. 8 Within the earthquake community, the term lifelines generally has given way to the term lifeline infrastructure. See Earthquake Engineering Research Institute, “Improve Reliability of Lifeline Infrastructure Systems,” white paper, April 5, 2016, at https://www.eeri.org/wp-content/uploads/eeri-policy-lifelines.pdf. 9 The NEHRP Advisory Committee was composed of experts outside of the NEHRP agencies. Congress intended the committee to review NEHRP and present its findings to Congress, while advising NEHRP about its review. Congress established a new Advisory Committee on Earthquake Hazards Reduction (ACEHR) in 2004. ACEHR is distinct from the previous committee, but the two share some aspects of committee structure and some objectives. 10 This warning system refers to providing an automated alert to high-risk activities (e.g., stopping trains when an earthquake is detected) about damaging ground shaking after an earthquake starts. See footnote 7 for an explanation of the changing definition of warning over NEHRP’s legislative history. 11 From FY2004 through FY2014, George E. Brown Jr. Network for Earthquake Engineering Simulation (NEES) program activities consisted of 15 experimental facilities and an information-technology infrastructure with a goal of mitigating earthquake damage by the use of improved materials, designs, construction techniques, and monitoring tools. The National Science Foundation (NSF) ended NEES in FY2014 and started the Natural Hazards Engineering Research Infrastructure (NEHRI) program in FY2015. NEHRI is a distributed, multiuser, national facility that provides research infrastructure for the natural hazards research community, including earthquake and wind engineering experimental facilities, cyber infrastructure, computational modeling and simulation tools, and research data. A description of NEHRI facilities and opportunities is available at NSF, “Natural Hazards Engineering Research Infrastructure (NEHRI),” at https://beta.nsf.gov/funding/opportunities/natural-hazards-engineering-research-infrastructure-nheri. 12 ACEHR is composed of 11 outside experts on earthquake hazard risk reduction from science, engineering, and industry standards organizations; financial organizations; and state and local governments. ACEHR is to provide the following assessments in biennial reports to Congress: (1) trends and developments in the science and engineering of Congressional Research Service 4 link to page 8 link to page 6 The National Earthquake Hazards Reduction Program (NEHRP): Issues in Brief Figure 1. NEHRP Agency Responsibilities and End Users of NEHRP Products Source: National Earthquake Hazards Reduction Program (NEHRP) program office at http://www.nehrp.gov/pdf/ppt_sdr.pdf (modified by CRS). Notes: FEMA = Federal Emergency Management Agency; NIST = National Institute of Standards and Technology; NSF = National Science Foundation; USGS = U.S. Geological Survey. NEHRP Reauthorization Act of 2018 (P.L. 115-307) The 2018 NEHRP reauthorization act (P.L. 115-307) kept the four-agency program intact. The act called for additional oversight, management planning, and strategic planning to enhance coordination, cooperation, and efficient progress on objectives (See Figure 1 for agency coordination and cooperation from research through implementation). The act expanded emphasis on earthquake early warning systems and earthquake-resistant construction and requested support for resilience, such as earthquake-resistant structures that continue to function after an event and communities that are prepared to respond effectively to and recover efficiently from a seismic event. Changes to Findings, Purposes and Definitions (Section 2) Starting in the 1990s, NEHRP activities shifted from earthquake prediction to earthquake warning after an earthquake is detected. The 2018 NEHRP reauthorization act codified that shift by removing references to earthquake prediction throughout the act. For example, Section 2 of the 2018 act modifiedand Technology (NIST).

Changes to NEHRP Since Its Inception

A Shift in Program Emphasis to Hazard Reduction

From FY2004 through FY2014, program activities also included the NSF-supported George E. Brown Jr. Network for Earthquake Engineering Simulation (NEES) that consisted of 15 experimental facilities and an information-technology infrastructure with a goal of mitigating earthquake damage by the use of improved materials, designs, construction techniques, and monitoring tools. Prior to enactment of P.L. 115-307, NSF supported the successor to NEES, the Natural Hazards Engineering Research Infrastructure (NEHRI).⁸

Responsibilities of NEHRP Agencies Under P.L. 108-360

The 2004 law made the director of NIST chair of the Interagency Coordinating Committee for NEHRP. Other members of the committee include the directors of FEMA, USGS, NSF, the Office of Science and Technology Policy, and the Office of Management and Budget. The Interagency Coordinating Committee is charged with overseeing the planning, management, and coordination of the program. Primary responsibilities for the NEHRP agencies break down as follows (see also Figure 1):

Figure 1. NEHRP Agency Responsibilities and End Users of NEHRP Products

Source: National Earthquake Hazards Reduction Program (NEHRP) program office at http://www.nehrp.gov/pdf/ppt_sdr.pdf (modified by CRS). Notes: FEMA = Federal Emergency Management Agency; NIST = National Institute of Standards and Technology; NSF = National Science Foundation; USGS = U.S. Geological Survey.

Table 1 shows the enacted budgets for NEHRP agencies from FY2005 through FY2018 (and the budget request for FY2019). Enacted appropriations for FY2005-FY2009 totaled $617.9 million, or 68% of the total amount of $902.4 million authorized in P.L. 108-360 over the five-year span (see Table 1). The new NEHRP reauthorization act authorizes a total of $760.3 million for NEHRP activities summed over the five-year span FY2019-FY2023, approximately $142 million less than total amount authorized by P.L. 108-360 (not adjusted for inflation).¹¹

The NEHRP Reauthorization Act of 2018 (P.L. 115-307)

Changes to Findings, Purposes, Definitions (Section 2)

As noted above, NEHRP activities shifted long ago from a goal of earthquake prediction to earthquake hazard reduction. The 2018 NEHRP reauthorization act codifies that shift by removing references to earthquake prediction throughout the bill. For example, Section 2 modifies the congressional findings section (42 U.S.C. 7701) by omitting the linkage between seismological research and earthquake prediction, substituting the finding that "“a well-funded seismological research program could provide the scientific understanding needed to fully implement an effective earthquake early warning system.”13 earthquake hazards reduction; (2) effectiveness of NEHRP; (3) the need to revise NEHRP; and (4) NEHRP’s management, coordination, implementation, and activities. ACEHR is distinct from the congressionally established 1990 NEHRP Advisory Committee, which ended its service in 1993. 13 For a discussion of prediction and warning and the changes in the meaning of a warning system, see footnote 7. Congressional Research Service 5 The National Earthquake Hazards Reduction Program (NEHRP): Issues in Brief Section 2 of the 2018 act introduced the concept of resilience to earthquake hazards.14 For example, Section 2 cited a National Research Council study withimplement an effective earthquake early warning system."¹² An earthquake early warning system would automatically send an alert to areas in danger of potential shaking after the earthquake is initially triggered. The alert would potentially allow components of the lifeline infrastructure,¹³ such as electric utilities, railway systems, and even hospital operating rooms, to cease activities that could be impaired by violent shaking before the first earthquake-triggered surface waves reach them.

Section 2 of P.L. 115-307 also introduces the concept of resilience to earthquake hazards. For example, Section 2 cites a National Research Council study that includes goals and objectives for achieving national earthquake resilience.¹⁴15 Section 2 also amendsamended the congressional statement-of-purpose section (42 U.S.C. 7702) to includeadd the purpose of increasing thecommunities’ resilience of communities to future earthquakes in addition to the to the existing purpose of reducing the risks to life and property. The new act defines "community resilience" in the definitions section of the 2018 act defined community resilience as “of the law (42 U.S.C. 7703) to mean "the ability of a community to prepare and plan for, absorb, recover from, and more successfully adapt to seismic events."

” (42 U.S.C. 7703). Section 2 of P.L. 115-307 also takes note of the aspect of resilience that includesP.L. 115-307 called for resilience to include building design and construction of buildings, so that those structures are built to potentially continue functioning, or to be reoccupied, in spite of despite earthquake damage. Section 2 introduced the language of “re-occupancy, recovery, reconstruction.” In addition, P.L. 115-307 addeddamage. The act notes that the built environment historically has been constructed and maintained to prevent severe injuries or loss of life, but not necessarily to continue functioning or to be reoccupied without a complete reconstruction. Section 2 introduces the language of "re-occupancy, recovery, reconstruction" following an earthquake to capture this trend within the seismic resilience community.

The new act also adds the states of Oregon and Tennessee, together with the Commonwealth of Puerto Rico, to the 39 states previously identified as subject to15 states the law named as facing significant earthquake risk. The 2018 law identified 39 states facing major or moderate seismic risk (42 U.S.C. 7701).

16 Changes to Program Activities and Agency Responsibilities (Section 3) Section 3 of the 2018 NEHRP reauthorization act added new duties for the ICC. P.L. 115-307 required the committee to develop a strategic plan for NEHRP, a management plan to implement the strategic plan, and a coordinated interagency budget on a biennial basis. The ICC is developing a strategic plan for FY2022-FY2029 and intends to submit the plan to Congress likely in fall 202117 the management plan and interagency budget await a finalized strategic plan. In addition, P.L. 115-307 required the ICC to develop memoranda of understanding with any relevant federal agencies (such as the National Aeronautics and Space Administration and the National Oceanic and Atmospheric Administration) on data sharing and resource commitments in the event of an earthquake disaster. Further, the ICC shall coordinate with the Secretaries of Agriculture and the Interior on the use of federal lands for monitoring, research, and data collection. The ICC is required to coordinate with the Secretaries of Transportation and Housing and Urban Development on earthquakes’ effects on transportation and building stocks (including the lifeline infrastructure). The 2018 act required the NEHRP ICC to coordinate with its counterpart committee on the National Windstorm Impact Reduction Program,18—as well as with other natural hazards coordination committees, as determined appropriate—to share data and best practices. 14The term resilience in discussions regarding reducing earthquake risk and resilience typically refers to better preparations, better situational awareness, and more earthquake-resistant structures that lead to less damage and faster recovery from an earthquake. Earthquake-resistant structures are structures that are capable of withstanding, with less damage, an earthquake that could harm people and property and that are capable of reoccupation and function right after an earthquake. 15National Research Council, National Earthquake Resilience, Research, Implementation, and Outreach, 2011, at http://www.nehrp.gov/pdf/nrc2011.pdf. 16 The act identifies these particular states—Alaska, California, Hawaii, Illinois, Massachusetts, Missouri, Montana, Nevada, Oregon, New Jersey, New York, South Carolina, Tennessee, Utah, and Washington―and the Commonwealth of Puerto Rico as facing significant earthquake risks. 17 NEHRP, ACEHR Report on NEHRP Effectiveness FY20-FY21: A Report from the Advisory Committee on Earthquake Hazards Reduction, September 30, 2021, available at https://nehrp.gov/pdf/ACEHR_2021_Report_Package_to_NIST.pdf (hereinafter cited as NEHRP, ACEHR Report, 2021), pp. i and 2. 18 See National Institute of Standards and Technology (NIST), Engineering Laboratory/Materials and Structural Congressional Research Service 6 link to page 11 link to page 6 link to page 7 The National Earthquake Hazards Reduction Program (NEHRP): Issues in Brief Section 3 of P.L. 115-307 modified FEMA’s duties and required FEMA to enter cooperative agreements or contracts to establish demonstration projects on earthquake hazards modification, link research and mitigation efforts with emergency management programs, and prepare educational materials for national distribution (substituting the word “shall” in the enacted language for the word “may” in existing law). Section 3 of P.L. 115-307 removed statutory language requiring the USGS to develop procedures for making earthquake predictions and replaced it with language for developing procedures to issue earthquake alerts and early warnings. The 2018 act inserted language to “continue the development of the ... [ANSS], including earthquake early warning capabilities,” as part of 42 U.S.C. 7704(a)(2)(D).19 Further, P.L. 115-307 required the USGS, in the event of an earthquake, to issue an alert and a warning, when necessary and feasible, to FEMA, NIST, and state and local officials. The act required the USGS to publish maps of active faults and folds, plus maps of areas that are susceptible to specific earthquake hazards (e.g., liquefaction or landslides).20 The 2018 NEHRP reauthorization act removed language in existing law that required NSF to support earthquake-related research using NEES. Instead, P.L. 115-307 referred to using “experimental and computational facilities.”21 Section 3 of P.L. 115-307 added(Section 3)

NEHRP Agencies

The new act strikes language in current law that requires NSF to support earthquake-related research using the George E. Brown Jr. Network for Earthquake Engineering Simulation (NEES), and instead refers generically to using "experimental and computational facilities." Also, Section 3 adds a new subsection to existingto current law requiring NSF to identify and track NEHRP grant funding. Review of NEHRP (Section 4) Section 4 of P.L. 115-307 required the Government Accountability Office (GAO) to complete a review of federal earthquake hazards risk reduction efforts and report its findings within three years of enactment.22 GAO interviewed the agencies and is preparing its findings for Congress.23 Seismic Standards (Section 5) Section 5 of grant funding that is part of the NEHRP program, and to provide a report at least every two years specifying the amount of NSF funding awarded to conduct research that enhances the understanding of earthquake science.

Review of NEHRP (Section 4)

Seismic Standards (Section 5)

Section 5 of P.L. 115-307 replaces language in current law (42 U.S.C. 7705b) that called for the adoption of seismic safety standards for buildings constructed or leased by the federal government. The new language requires, instead, an assessment and recommendations for improving the built environment and critical infrastructure specifically "to P.L. 115-307 replaced language in current law (42 U.S.C. 7705b) that called for the adoption of seismic safety standards for buildings constructed or leased by the federal government. The 2018 NEHRP reauthorization act required, instead, an assessment and recommendations for improving the built environment and critical infrastructure, specifically “to Systems Division, “National Windstorm Impact Reduction Program Office,” at https://www.nist.gov/el/materials-and-structural-systems-division-73100/national-windstorm-impact-reduction-program-nwirp. 19 In Section 8 (Technical Corrections) of P.L. 115-307, the act deleted references in the U.S. Code to the Advanced National Seismic System (ANSS) predecessor—the Advanced National Seismic Research and Monitoring System. For more on ANSS, see the “Management of Advanced National Seismic System (Section 6)” section of this product. Also note that earthquake early warning means providing an alert after the start of an earthquake is detected, which is the modern definition and usage of the term (as opposed to the meaning of warning in the 1977 act, see footnote 7). 20 Earthquakes cause intense ground shaking, ground displacement and liquefaction. Liquefaction occurs when loose, weak or water-saturated soils or rocky materials lose their strength because of earthquake-induced ground shaking. When liquefaction happens around structural elements, such as buildings or bridges, these structures can be damaged or collapse. For more information about liquefaction, see USGS, “What Is Liquefaction?,” at https://www.usgs.gov/faqs/what-liquefaction. Earthquakes can trigger other natural hazards such as tsunamis, landslides, fires, floods, or volcanic eruption. 21 See footnote 11. 22 P.L. 115-307 required GAO to submit the report to the Senate Committees on Commerce, Science, and Transportation; Energy and Natural Resources; and Homeland Security and Governmental Affairs, and to the House Committees on Science, Space, and Technology; Natural Resources; and Homeland Security. 23 NEHRP, ACEHR Report, 2021, pp. 5-6. Congressional Research Service 7 The National Earthquake Hazards Reduction Program (NEHRP): Issues in Brief reflect performance goals stated in terms of post-earthquake reoccupancy and functional recovery time.” time."

This language highlights one of the changes in overall NEHRP program direction to enhance the aspect of earthquake resilience, meaning building structures that would allow for continued use and reoccupancy following an earthquake. The assessment and recommendations would come from a committee of experts, appointed by the Director of NIST and Administrator of FEMAhighlighted one of the changes in NEHRP emphasis to enhance resilience. The NIST Director and the FEMA Administrator appointed a committee of experts, representing federal agencies, nongovernmental organizations, the private sector, disaster management associations, engineering associations, and construction and homebuilding industry associations. Under P.L. 115-307, the committee is required to submit a report to Congress with recommended options no later than June 30, 2020.¹⁹

Management Plan for Advanced National Seismic System (ANSS) (Section 6)

The ANSS is a nationwide network of seismographic stations operated by USGS. It consists of a "backbone", to prepare such a report for Congress.24 NIST and FEMA jointly published the committee’s report in January 2021.25 The report recommended seven actions for communities to enhance resiliency: 1. Develop a framework for post-earthquake reoccupancy and functional recovery objectives 2. Design new buildings to meet recovery-based objectives 3. Retrofit existing buildings to meet recovery-based objectives 4. Design, upgrade, and maintain lifeline infrastructure systems to meet recovery- based objectives 5. Develop and implement pre-disaster recovery planning focused on recovery- based objectives 6. Provide education and outreach to enhance awareness and understanding of earthquake risk and recovery-based objectives 7. Facilitate access to financial resources needed to achieve recovery-based objectives. Management of Advanced National Seismic System (Section 6) ANSS is a nationwide network of seismic stations operated by the USGS. It consists of a “backbone” network of about 100 seismic stations throughout the United States, the National Earthquake Information Center, the National Strong Motion Project, and 15 regional seismic networks operated by the USGS and partner institutions.²⁰ The new act requires26 The 2018 NEHRP reauthorization act required a new five-year management plan for ANSS. The USGS submitted a five-year management plan for ANSS to Congress in November 2021.27 The plan prioritized core ANSS activities including monitoring, 24/7 reporting, rapid assessment, and earthquake early warning. Authorization of Appropriations (Section 7) Section 7 of P.L. 115-307 authorized appropriations for NEHRP activities over a five-year period, FY2019-FY2023. The act apportioned the same authorized amount per agency each year. The total authorization broken down by agency was as follows: 24 P.L. 115-307 required the committee to submit a report to Congress with recommended options no later than June 30, 2020. The committee submitted the report to the Senate Committees on Commerce, Science, and Transportation; Energy and Natural Resources; and Homeland Security and Governmental Affairs, and to the House Committees on Science, Space, and Technology; Natural Resources; and Homeland Security. 25 NIST and FEMA, Recommended Options for Improving the Built Environment for Post-Earthquake Reoccupancy and Functional Recovery Time, NIST-FEMA Special Publication FEMA P-2090/NIST SP-1254, January 2021, at https://doi.org/10.6028/NIST.SP.1254. 26 For more information, see the USGS, Earthquake Hazards Program, “ANSS—Advanced National Seismic System,” at https://www.usgs.gov/natural-hazards/earthquake-hazards/anss-advanced-national-seismic-system. 27 The USGS, Earthquake Hazards Program, Advanced National Seismic System 5-Year Management Plan, November 2021. Congressional Research Service 8 link to page 12 The National Earthquake Hazards Reduction Program (NEHRP): Issues in Brief  USGS: $83.4 million per year, $417 million total28  NSF: $54 million per year, $270 million total  FEMA: $8.76 million per year, $43.8 million total  NIST: $5.9 million per year, $29.5 million total The total five-year NEHRP authorization of appropriations was a new five-year management plan for ANSS, which includes the following elements:

Authorization of Appropriations (Section 7)

The total five-year NEHRP authorization of appropriations is $760.305 million for FY2019-FY2023, or about $152 million annually. The findings section (Section 2) of P.L. 115-307 recognizes noted that the National Research Council in 2011 recommended funding of approximately $300 million annually for 20 years (in 2009 dollars).²² That value;29 that amount is about twice the average annual amount authorized for appropriations in P.L. 115-307.

Outlook