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December 7, 2021
The National Volcano Early Warning System
In 2019, Congress authorized a National Volcano Early
eruptions were accompanied by destructive lava flows and
Warning and Monitoring System (NVEWS; Section 5001
frequent earthquakes.
of P.L. 116-9; 43 U.S.C. 31k). The law directed the
Secretary of the Interior to establish NVEWS to monitor
The USGS asserted that many of the very high and high
volcanoes, warn U.S. citizens of volcanic activity, and
threat volcanoes are not monitored well enough to provide
protect citizens from “undue and avoidable harm” resulting
adequate warnings (i.e., monitoring gaps exist). Congress
from volcanic activity.
authorized the USGS to remedy these monitoring gaps and
enhance warnings by establishing NVEWS. NVEWS is to
Congress is interested in a volcano early warning and
be organized within the USGS’s Volcano Hazards Program
monitoring system because the nation faces threats from
(VHP). VHP studies, monitors, assesses and warns the
many active volcanoes. In 2018, the U.S. Geological
public about threatening volcanoes in the United States.
Survey (USGS, a bureau within the Department of the
VHP operates five volcano observatories (Alaska,
Interior) published an assessment of the volcanic threat,
California, Cascades, Hawaiian, and Yellowstone; see
which indicated that better monitoring is necessary for
Figure 1), a Volcano Science Center, and a Volcano
effective warnings. The USGS volcanic threat assessment
Disaster Assistance Program (to assist with volcano threats
assigned five threat levels (very high, high, moderate, low,
internationally).
and very low) to 161 volcanoes in 14 states and U.S.
territories (see Figure 1).The assessment ranked 18
NVEWS Authorization
volcanoes as very high and 39 as high threats. Eleven of the
The 2019 law authorized NVEWS and specified that the
18 very high threat volcanoes are in Washington, Oregon,
system’s objective is to monitor U.S. volcanoes at a level
or California; five are in Alaska; and two are in Hawaii.
commensurate with the volcanic threat. NVEWS is to have
The assessment noted that the high- and moderate-threat
two purposes: (1) organize, modernize, standardize, and
volcanoes are mostly in Alaska and that the more explosive
stabilize the monitoring systems of the five U.S. volcano
Alaskan volcanoes can affect national and international
observatories and (2) unify the monitoring systems of these
aviation. The volcano ranked as the highest threat is
observatories into a single interoperative system.
Kilauea, the Hawaiian volcano whose 2018 intense
Figure 1. USGS Volcano Observatories and U.S. Volcanoes Posing Moderate or Higher Threat
Source: CRS adapted from Peter F. Cervelli et al., USGS, Five-Year Management Plan for Establishing and Operating NVEWS: The National Volcano
Early Warning System, Open-File Report 2021-1092, at https://doi.org/10.3133/ofr2021109.
Notes: The two high and seven moderate threat volcanoes in the Commonwealth of the Northern Mariana Islands are not shown here. The
AVO is responsible for these volcanoes.
https://crsreports.congress.gov
The National Volcano Early Warning System
Section 5001 of P.L. 116-9 authorized three system
Issues for Congress
components for NVEWS: (1) a 24-hour, 7-day-a-week
Congress may consider whether appropriating funds for
operational national volcano watch office; (2) a national
NVEWS would help the system meet its objectives of
volcano data center; and (3) an external grants program to
monitoring commensurate with volcanic threats in order to
support volcano research. The law established an advisory
provide effective volcano warnings to prevent harm. The
committee composed of representatives of relevant agencies
2019 law authorized appropriations of $55 million over five
and members of the scientific community to assist the
years for NVEWS, or about $11 million per year; Congress
Secretary of the Interior in implementing the system. The
has not appropriated funds specifically for NVEWS since
law authorized the Secretary of the Interior to enter into
authorization. The FY2022 President’s budget requested
cooperative agreements with academic institutions and state
$33.5 million for VHP, which included $1.8 million for
agencies as volcano observatory partners. In addition, the
NVEWS for national volcano data center improvements. In
law required a five-year management plan for the system
July 2021, H.Rept. 117-83, which accompanied the House
and an annual report describing the activities carried out
FY2022 consolidated appropriations bill (H.R. 4502),
under authorities provided in the law.
recommended $33.5 million for VHP including funding for
the NVEWS for national volcano data center
The law authorized the USGS to modernize monitoring
improvements. In October 2021, the Senate Appropriations
systems at existing volcano observatories to incorporate
Committee chairman released a draft FY2022 Interior,
emerging technologies, such as digital broadband
Environment, and Related Agencies bill and report, which
seismometers, real-time Global Positioning System
recommended $35.5 million for VHP including $3.7
receivers, satellite and airborne radar interferometry,
million for establishing NVEWS and $1.8 million for high
acoustic pressure sensors, and spectrometry to measure gas
threat volcano monitoring and the national volcano data
emissions from volcanoes. These technologies are intended
center.
to provide more accurate and real-time measurements of
volcanic activity, enabling better assessments of the timing
VHP expresses that upgrades to monitoring systems, as
and location of volcanic eruption threats.
authorized by P.L. 116-9, are necessary to achieve the
objectives of NVEWS. Without NVEWS appropriations at
Status of Implementation
the level authorized by P.L. 116-9, VHP estimates it would
The USGS submitted to Congress a five-year plan for
take 25 years to fill monitoring gaps for the 34 very high to
establishing and managing NVEWS in 2020. The plan
high threat volcanoes identified in the five-year plan,
identified 34 very high or high threat volcanoes from the
leaving the nation unable to adequately monitor or warn the
2018 volcanic threat assessment that have the greatest
public if one of these under-monitored volcanoes were to
monitoring gaps and called for improved monitoring for
erupt.
these volcanoes. In addition, the plan called for establishing
a national volcano data center with watch capabilities,
Congress has provided the USGS with funds for volcano
launching an external grants competition, standing up an
monitoring in previous supplementary and annual
NVEWS advisory committee, and implementing
appropriations that directed VHP to complete enhanced
cooperative agreements with states and universities. The
monitoring prerequisites. These activities included
plan also called for creating a supply of monitoring
upgrading telemetry for Alaskan volcanoes and completing
equipment that could be rapidly deployed to enhance
a next generation lahar (i.e., a mix of water and rock that
monitoring and improve warnings at the start of volcanic
flows down a volcanic slope and can cause damage)
activity.
detection pilot system. For example, according to the
USGS, VHP used $14.5 million in FY2018 supplemental
Congress provides annual appropriations to the USGS
appropriations that Congress specified for these prerequisite
through the Interior, Environment, and Related Agencies
activities and $12.8 million of $30.3 million in FY2021
appropriations bills, but as of November 2021, the USGS
VHP appropriations for upgrades to telemetry and lahar
had not begun the activities outlined in the management
detection.
plan due to a lack of specific appropriations for
implementing NVEWS, according to the USGS. The USGS
If Congress chooses not to fund NVEWS at its authorized
five-year plan includes a cost estimate of about $11 million
level, but wants to increase warning capabilities, then
per year for NVEWS, which would include $7-$9 million
Congress might focus funding on enhanced monitoring
per year to enhance monitoring to provide adequate
activities. Congress also may consider the pace at which to
warning; $1-$3 million per year to establish and operate the
enhance monitoring at the 34 under-monitored volcanoes to
data center; and up to $1 million per year to perform
protect U.S. citizens. Improving monitoring at more
coordinated activities, such as cooperative agreements,
volcanoes sooner (i.e., over three to five years instead of
external research grants and committee activities.
over decades), some argue, likely require an increase in
appropriations for VHP over current would funding levels.
The USGS is establishing an NVEWS implementation
committee, composed of observatory staff and cooperative
Linda R. Rowan, Analyst in Natural Resources Policy
partners, to guide the implementation of NVEWS once
Anna E. Normand, Analyst in Natural Resources Policy
funds are appropriated. Further, the USGS is establishing
the NVEWS advisory committee, as directed by the
IF11987
NVEWS law and anticipates the committee’s formulation
by FY2023.
https://crsreports.congress.gov
The National Volcano Early Warning System
Disclaimer
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congressional committees and Members of Congress. It operates solely at the behest of and under the direction of Congress.
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https://crsreports.congress.gov | IF11987 · VERSION 1 · NEW