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Chihiiabuan Desert in Big Bend National Park. Photo credit: Laura Pierce.
Notice: This report was written as part of the activities of the Good Neighbor Environmental Board, a public advisory committee
authorized under Section 6 of the Enterprise for the Americas Initiative Act, 7 U.S.C. Section 5404. It is the Board's Fourth Report to the
President and Congress of the United States. The U.S. Environmental Protection Agency manages the operations of the Board. However,
this report has not been reviewed for approval by EPA and hence, the report's contents and recommendations do not necessarily
represent the views and policies of the EPA, nor of other agencies in the Executive Branch of the Federal government, nor does mention
of trade names or commercial products constitute a recommendation for use.
EPA-130-R-00-001
An electronic copy of this report can be found at www.epa.gov/ocem/gneb-page.htm
Cover Photo: Rio Grande River. Photo credit: Laura Pierce.
-------
GRTEB
The Good Neighbor
Environmental Board
The President
The Speaker of the House of Representatives
The Vice President
On behalf of the Board, I am pleased to present this Fourth Report of the Good
Neighbor Environmental Board to the President and Congress of the United States.
The Report reflects extensive discussions on the part of the Board Members about
the needs of the border region, as well as considerable input from die public. The
five recommendations it contains all reflect the basic premise that the U.S.-Mexico
border region faces critical water problems. Too many piecemeal demands are being
made on its water resources, to the detriment of the environment and, in the not-so-
distant future, die economy. In the view of the Board, full support from the
President and Congress for a watershed approach to strategically address the issue
should be a top priority.
The Board appreciates the opportunity to offer these recommendations and respectfully
requests a response. It intends to monitor follow-up to its recommendations and wel-
comes ongoing dialogue with the Executive Branch and Congress on the implementa-
tion process.
Respectfully yours,
Judith M. Espinosa,
Chair
f&SfJ^^SWSSb
^irfuiC^iiEl.^^^!!^-^
"-^=-- -- . . ... •. 'r \-.i-
-------
-------
Fourth Report
ofthe
Good Neighbor Environmental Board
to the President and Congress
ofthe United States
The Good Neighbor
Environmental Board
September 2000
-------
-------
Contorts
Preface
Fourth Report Recommendations at a Glance
Backdrop
— Why A Watershed Approach
— Why Especially in the U.S.-Mexico Border Region
— U.S.-Mexico Border Watersheds: A Profile
4
5
8
Fourth Report Recommendations in Context
13
Conclusions
22
The Binational Dimension
— EPA's Border XXI Program-A Board Perspective
•—Good Neighbor's Coordination with Mexico
25
39
Appendices
— Board Membership Roster
— Relevant Web Sites
40
43
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The Good Neighbor
Environmental Board
The:
!Good Neighbor Environmental Board is an independent federal advisory
committee. Its mission is to advise the President and Congress of the United
States on good neighbor practices along the U.S. border with Mexico. Its recommenda-
tions are focused on environmental and infrastructure needs within the States of the
United States contiguous to Mexico. Good Neighbor does not carry out any specific
border program. Rather, its role is to step back as an expert, concerned observer and
strategically analyze the big picture when it comes to the problems the border region
faces as well as the opportunities at hand.
Board members include representatives from eight federal government agencies and
from each of the four U.S. border states —-Arizona, California, New Mexico, and Texas.
The combined expertise at the table reflects perspectives from many U.S. sectors includ-
ing federal, tribal, state, and local government; non-governmental; academic institu-
tions; and businesses. Good Neighbor also confers regularly with Mexican organizations
including The Region 1 National Advisory Council for Sustainable Development
(Consejo). It meets three times a year at various border locations.
Good Neighbor submits its advice to the President and Congress in the form of reports
containing recommendations for action. Its first report was published in 1995. Since
that time, it has continued to provide an objective, consensus-based voice on strategic
approaches for addressing U.S.-Mexico border issues. Recurring themes in its guidance
include the following: focus on areas of greatest need; better integrate existing projects;
support new initiatives that provide added value; involve many different organizations
early on and throughout the process; and institute an underlying, environmentally-sus-
tainable framework as the basis for making decisions.
The Good Neighbor Environmental Board is managed by the U.S. Environmental
Protection Agency under the provisions of the Federal Advisory Committee Act (FACA).
Its meetings are open to the public. For more information, contact the Designated
Federal Officer of the Good Neighbor Environmental Board at (202) 564-9741.
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Preface:
!Each year, the federal government turns to hun-
dreds of advisory committees for guidance on
how to do its job better. The Good Neighbor Environmental Board is
one of diese committees, the only one with the responsibility for
advising the President and Congress on what constitute "good neigh-
bor" environmental and infrastructure practices along the 2000-mile
border the United States shares with Mexico. Its first report in 1995
focused on the environmental health needs of the border as well as
ways to improve community involvement in alleviating border prob-
lems. Since that time, Good Neighbor has continued to call for the
President and Congress to support actions that better integrate exist-
ing programs. It also continues to encourage new approaches that
more strategically address border needs and involve many different
parties at the beginning and throughout the process.
Recommendations in this year's report, its fourth, are targeted at
one of the region's most pressing issues: water. In a word, the border
region does not have the infrastructure, policy, or institutions
required to address the public's water needs, either in terms of quan-
tity or quality. According to a U.S. General Accounting Office
(GAO) report from March 2000, a binational assessment concluded
that 12 percent of the border population does not have access to
potable water and 30 percent lack access to wastewater treatment
facilities. Meanwhile, the economy and population of the area con-
tinue to grow rapidly, intensifying pressure on these already inade-
quate systems. Strategic solutions to water problems must be found
and acted upon now to maintain the economic viability of the
region, not to mention the health of its twelve million residents and
the sustainability of its fragile ecosystems.
Water resource challenges, however, are only one part of a broad-
er conundrum diat besets the region. In the same report, GAO notes
the significant absence of an overall strategic plan to address border
environmental infrastructure problems in the region. Similar con-
cern was echoed during public comment sessions sponsored by the
President's Interagency Task Force on the Economic Development
of the Southwest Border. President Clinton announced the creation
of the Task Force in 1999, requesting that all federal agencies develop
and implement a comprehensive strategy to, first of all, fully assess
the border region's problems. The next step was to develop a coordi-
nated federal response to help alleviate these problems and encour-
age sustainable economic development.
The Good Neighbor Environmental Board supports GAO's call
for a strategic plan to address border region environmental infra-
structure needs. Specifically, it recommends that infrastructure needs
related to water resources be targeted as a top priority for immediate
and continual action over the course of at least a decade.
More specifically, Good Neighbor recommends that a Border-
Region Strategic Water Plan be developed. This Plan should be
based on a watershed approach, which should become the universal-
ly-adopted basis for alleviating water problems and encouraging sus-
tainability in border region water resources. Its development must
include participation, in fact, leadership, from state, local and tribal
governments and complement their own efforts to support a water-
shed-based approach. While recognizing that the watershed
approach already has made some inroads, the Board calls for these
efforts to be stepped up and fully supported until the approach is
institutionalized and implemented border-wide with full participa-
tion from the many affected parties.
The Strategic Water Plan should address both surface and
groundwater issues. It should lead to sustainability for both natural
ecosystems and economic activity, thereby also helping to safeguard
human health. Hand in hand with the bipartisan U.S. portion of
this effort, a coordinated, transboundary effort involving Mexico
should be encouraged so that lasting solutions of the magnitude
required are put into place. Needless to say, immediate solutions
must continue to be found for communities facing water problems
that cannot wait.
To begin this process, the Board recommends that key priority
watersheds be selected for special focus within the overall Plan.
Successes and lessons learned from this subset of watersheds can then
be applied elsewhere until all border-region watersheds are managed
through a watershed approach. At the same time, Good Neighbor
urges support of any and all efforts to move toward watershed-based
thinking and actions. Efforts in areas other than the initial subset of
watersheds selected should be fully recognized and encouraged.
In the report that follows, this watershed approach concept is
laid out through five interrelated recommendations. Each recom-
mendation is accompanied by background contextual information,
goals, objectives, and measures for success. Following the five rec-
ommendations, an ensuing section singles out one of the border's
major operating programs, the U.S.-Mexico Border XXI Program,
which is led by the U.S. Environmental Protection Agency and the
Mexican Ministry of the Environment, Natural Resources and
Fisheries (SEMARNAP), and provides a close-up assessment of its
contributions. Next, the benefits of the Board's ongoing ties with
Mexican civil society, including the Region 1 National Advisory
Council for Sustainable Development (Region 1 Consejo), are out-
lined. The report concludes with a Board roster and a listing of rele-
vant web sites.
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2000 Reconmendations at a Glance
B fladvisor to the President and Congress of the United States on environmental and infrastructure needs along
lAlJthe U.S. border with Mexico, we, the Good Neighbor Environmental Board, recommend that the following
five steps be taken:
tf^ Institutionalize a border-wide watershed approach. Enable institution of a watershed approach as the
underlying standard operating procedure for all projects that deal with water resources management along the
U.S. border with Mexico. Concentrate initially on key priority watersheds and then expand the effort.
4^ Support data-gathering and analysis that generates a dear picture of border watersheds. Using, initial-
ly, a subset of priority watersheds, strengthen current efforts to collect, integrate, and analyze die data need-
ed to flesh out watershed-based planning frameworks and fully understand both existing conditions and
potential future scenarios in them. Expand this effort until, eventually, sufficient data is gathered and avail-
able for all border-region watersheds so that a watershed approach can be fully implemented.
@ Highlight and support water resource management practices along the border that are based on a water-
shed approach. Develop a. Border-Region Strategic Water Plan that becomes a useful operational tool for day-
to-day management decisions about individual watersheds made by U.S. federal, state, county, municipal and
tribal decision makers, and also is available to other interested groups. The Plan should identify key transbound-
ary water quality and quantity issues, present core components of a transboundary watershed analysis, and
include preliminary options for addressing these issues and complement existing state, local and tribal govern-
ment watershed-based plans and programs.
^^ Encourage the full participation of tribal governments, along with binarional organizations, federal,
state and local governments and other border groups, in developing and implementing a watershed
approach. Ensure that the training, funding and physical infrastructure needs of all tribal governments, along
with other border governmental agencies and population groups, are fully addressed when developing and
implementing a watershed management approach.
^^ Provide continued federal budgetary support for actions and programs consistent with the themes and
purposes of a watershed approach for the border region. Good Neighbor especially wishes to emphasize the
importance and urgency of continued and full budgetary support for binational commitments to address bor-
der environmental issues within the context of a watershed approach.
The full text of the Good Neighbor Environmental Board's Fourth Report to the President and Congress of the
United States is available on-line atwww.epa.gov/ocem/gneb-page.htm.
.tattportoitheW^
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A watershed is a geographic area where water,
sediments, and dissolved materials drain into a
common water resource such as a lake, river, or
underground aquifer. Unlike political boundaries,
which may follow natural features like mountain
ranges but ultimately are determined by humans,
watersheds are boundaries shaped by nature.
When a watershed approach is used for managing a
region's water resources, the land is divided into
units that reflect these natural boundaries, regard-
less of whether or not they incorporate several dif-
ferent political boundaries. Watershed boundaries,
and the complex set of natural and human interac-
tions that take place within them, are then used as
the basis for studying water resource problems and
making the tough decisions about how to manage
them. Water allocation, water quality management,
drought and flood management, and aquatic habi-
tat protection are just a few examples of the many
water resource issues that benefit from a watershed
management approach.
Though progress is being made, considerable practi-
cal barriers remain. Inherently, when watersheds
cross local, state, tribal and, especially, national juris-
dictions, a host of political, policy, resource, and
budgetary complications come into play.
Researchers and practitioners alike can benefit from
working with new partners, more fully educating and
involving stakeholders, and building coalitions of
institutional support from many quarters.
Three years ago, federal support for adopting a
watershed approach was significantly strengthened
when Vice President Gore announced the decision
to launch a new initiative to tackle the most serious
water quality problems in the United States. The
result, the Clean Water Action Plan, was announced
by President Clinton the following year, in February
1998. The Plan provided a blueprint for restoring and
protecting the nation's water resources. Significantly,
it called for a cooperative approach to watershed
protection in which state, tribal, federal, and local
governments as well as the public identify those
watersheds with the most critical problems and then
work together to focus resources and implement
effective strategies to solve those problems. In
response, nine federal agencies have joined togeth-
er in new partnerships dedicated to improving water
quality in communities across the nation.
foitliReportof Ite ftHriNa'gfcMomenlidBoanl
Backdyop
Why a watershed approach?
Ml ^JI Al* is the lifeblood of any community, but especially
11 VllvJ. desert communities. Characterized by conditions of
low precipitation, the long-term viability of many desert communi-
ties depends on eidier using water at a sustainable rate, or identifying
additional new sources of supply to accommodate growth. For oth-
ers that have long ago surpassed their local supply, they import water,
provided they can afford to do so. Compared to many other com-
munities throughout the United States and Mexico, border region
communities deal with a perennial, almost unending condition of
drought. As water resources diminish, local groundwater resources
may be pumped out at a rate far greater than replenishment.
Eventually, unless practices change, the supply will run out.
The limitations of local water supplies must be accounted for in
the face of rapid growth and markedly increasing demands for water.
A holistic watershed approach is the optimal way to confront these
issues. The alternative is to proceed with development and economic
growth with the baseless hope that sufficient water of adequate qual-
ity will somehow materialize in the future to meet continually-grow-
ing demands from municipal, agricultural, industrial and wildlife
habitat sectors. Long-term water management planning is vital to
ensure the future adequacy of water supplies to sustain continued
development and economic growth. Awareness of a pending water
management problem can lead to locally-implemented solutions
such as conservation, wastewater reuse, aquifer recharge, or other
strategic approaches.
A concerted effort should be undertaken to minimize or avoid
die possibility of future binational conflicts over water resources, par-
ticularly groundwater. Along the entire lengdi of the border, basins
are shared by diverse communities widaout assurances of future
availability through treaties or other binational agreements. In some
places, rivers cross the border with no established arrangements for
sharing the resources.
Watershed analyses can provide the scientific information neces-
sary for sound water management decisions, whether they be local
decisions or applicable in the transboundary setting. Although some
of this work already has been done, or is getting under way in a few
important watersheds along the border, many other critical areas
could benefit from such efforts.
-------
Backdrop
Why especially in the Mexico border region?
MlOj I OilT or I*3 paucity, has been a central theme in border
I I lAlvlaregion history. In fact, the availability and develop-
ment of limited water supplies, die use of water, and the environ-
mental consequences of water development and use have largely
defined the historical and cultural context of the border region.
Border region watersheds' carrying capacity has been strikingly
altered over the last several decades as the region has undergone
major natural and human-induced changes. Municipal, agricultural
and industrial demands for water have steadily increased. At some
locations, these demands have reduced or eliminated surface water
flows, causing serious impacts to water-dependent habitats such as
riparian areas and marshes. Inattentiveness to the effects of these
developments, and flawed water management decisions based on
inadequate scientific information, are causing some native plants
species to die out and allowing other invasive species to enter sensi-
tive border-region ecosystems.
Aside from the quantity aspects of water management, dimin-
ished water quality in watercourses has demonstrably restricted the
amount of usable habitat available to some threatened or endangered
species. Raw and inadequately treated sewage, agricultural runoff, or
industrial discharges may all adversely affect habitat conditions.
Animal species, including fish, are becoming less diverse. Stresses
from climate shifts such as droughts and floods have made it difficult
for ecosystems to maintain equilibrium and have affected the com-
plex web of interactions among border watersheds' inhabitants.
Only a watershed approach can generate the information diat
decision-makers need to make sound decisions about the future of
water supplies for their communities. While there has been much
reliance on groundwater mining and importation of water supplies
throughout the West, serious concerns have been raised about this
unsustainable response to die demands of growdi. By contrast, a
watershed analysis can result in an awareness of the maximum carry-
ing capacity of water bodies, given available resources. Even more
importandy, it can identify ways in which these resources can be
optimized to the greatest benefit of local communities.
Successfully harnessing a watershed approach along the border
entails overcoming a potentially major hurdle: the 2,000-mile
national political border that draws a sharp line through the region's
watersheds and separates pieces of the same watershed into different
IDAHO
The! Colorado River
Source: The Interngtion
Boundary and Wat
Commission.
i^L LOWER BASIN
ARIZONA
'"ifbe Colorado River, a major watercourse in the border regon, 1:1,440
^miles long, extendingfrom its headwaters in Wyoming to the Gulf of
~i.Califom.ia in Mexico. .
-------
" \fiiterfiom the San Pedro River is diverted into cement-lined channels.
\ Source: "Watershed at itWatmhcd,"Arizona. State University for
» Southu.'est Center fir Environmental Research and Policy.
i Pb&to credit: LaurelMcSheny.
jurisdictions. For purposes of binarional cooperation and coordina-
tion, the 1983 La Paz Agreement defined die U.S.-Mexico border
area as the region extending 100 kilometers on either side of the inter-
national boundary between the U.S. and Mexico. Some border
region watersheds extend beyond this defined area. In some instances,
there may be good reason to apply a large-scale watershed approach
that officially extends beyond die defined "border area" for binational
cooperation. In other instances, there are valid reasons for dividing
some watersheds into smaller sub-watersheds for planning purposes.
Use of physical geologic and hydrologic boundaries, rather than
political boundaries, provides numerous benefits for planning and
management of water resources. Admittedly, different portions of
the same watershed may be subject to very different laws, policies,
funding decisions, and management practices. But the underlying
scientific and physical facts revealed through a watershed analysis can
shed objective light on discussions and make those management
decisions more compatible. At best, the information that emerges
can result in unifying decisions in previously unforseen ways.
Border region history, to some extent, has laid a foundation for
using a transboundary watershed lens to manage the area's water
resources. United States-Mexico treaties establish rights and obliga-
tions concerning ownership of the international waters of two of the
region's key water resources, the Colorado River and the Rio Grande
(called Rio Bravo in Mexico) River. Treaty management has been
entrusted to a government-to-government international organiza-
tion called the International Boundary and Water Commission
(1BWC). IBWC has utilized its position as an international commis-
sion to bring together governmental organizations from both coun-
tries to joindy acquire and exchange data about the region's
transboundary hydraulic basins.
For the Colorado River, the IBWC has convened a task force to
develop binationally-compatible baseline information about its
delta. Three types of information will be developed: hydraulic, envi-
ronmental and natural resource. The IBWC also is performing an
environmental review to study options to improve me gready-
reduced water-carrying capacity of the Colorado River along its 24-
mile shared boundary. One of the intended outcomes is to help
preserve this part of the river as die official international boundary.
For the 1,244-mile international portion of the Rio Grande
River, the IBWC is looking closely at flood control management
practices on both sides of the border. Current practices require signif-
icant, akhough selected, removal of vegetation. The IBWC review is
directed toward environmentally-sound vegetative management and
regional river management plans along this entire stretch of die river.
In another Rio Grande initiative, IBWC partnered with the U.S.
Department of the Interior (DOI) and die Mexican Ministry of the
Environment, Natural Resources and Fisheries (SEMARNAP) in
Spring 2000 to host a symposium about the segment of the River
located downstream of El Paso - Ciudad Juarez and the headwaters
of Amistad Dam. This 500-mile international segment includes the
Big Bend National Park in Texas and the Maderas del Carmen Flora,
Coahuila and Santa Elena, Chihuahua protected areas in Mexico.
One of the outcomes of the symposium was a Joint Declaration to
expand binational planning efforts to improve and conserve the nat-
ural resources of the Rio Grande and associated habitats. The
Declaration cites follow-up activities including: a binational task
force under the direction of the IBWC to implement recommenda-
tions; development and exchange of compatible information sys-
tems; and facilitation of public participation.
Besides this transboundary work on surface waters, binational
groundwater basin characterization efforts also are underway. IBWC
has promoted partnerships widi federal, state, and local authorities
concerning data exchange in selected groundwater basins that strad-
dle the boundary. Allocation decisions generally are governed by
U.S.-Mexico treaties. The only exception is the Yuma, Arizona - San
Luis Rio Colorado, Sonora area, where a temporary IBWC agree-
ment was drawn up in 1973.
Despite progress bodi above and below ground, much of diis gov-
ernment watershed work is just getting started. It must continue and
be magnified. Moreover, it must proceed hand in hand widi private-
sector conservation efforts on the part of ranchers and other landown-
ers. Collaboration, integration, and leveraging offending and human
resources must take place. Stresses on border water resources are great
and growing greater, and full support for strategic measures based on
a binational watershed approach is required now, not later.
-------
A watershed approach for the border region makes sense finan-
cially, environmentally, and for community-based participation rea-
sons. Moreover, it focuses attention on transboundary
environmental results. Coordinating efforts across traditional
boundaries of responsibilities means that programs based in different
organizations and even in each of the two countries can pool their
expertise and resources. Decision makers can consider all of the
issues affecting water management to come up with a more
informed plan for the region. In the end, everyone will benefit.
The Rio Grande Basin
Source: The International
Boundary and
Water Commission.
?--. The Rio Grande. River, one of the principal surface water resources for the border region, originates in the San
I Juan Mountains of southern Colorado. It flows southeast along a_ 1,885-mile course before it empties into the
I;-Gulf'of'Mexico. . • . " . . / . .
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Backdrop
Mexico Border Watersheds:
A Profile
Mexico;
(and the United States share a rich diversity of natural resources and cultures along
their 2000-mile shared border. Side by side with some of North Americas most
pristine, untouched ecosystems are some of its most rapidly-growing urban areas. Almost 12 mil-
lion people call the border region home. In recent decades, water supply in the region has come
under increasing pressure from demands on both sides of the border, even while sources are often
threatened by pollution that results in restricting their potential uses.
Surface-water supplies are allocated under international treaties and domestic laws. Rivers and
their adjoining riparian areas make up one of the principal surface water resources for the region.
The Rio Grande River is considered the most extensive. It originates in the San Juan Mountains of
soudiern Colorado and winds its way southeast along a 1,885-mile course before it empties into the
Gulf of Mexico. Along the way, the river and its tributaries drain a land area of 182,200 square
miles. For approximately two-thirds of its course the river also serves as the boundary between the
United States (specifically, the state of Texas) and Mexico. Its border area waters supply drinking
and irrigation uses for more than 6 million people and 2 million acres of land.
The complexities of water resource management and the benefits of coordination with Mexico
are perhaps nowhere better illustrated than in the case of the well-being of the Rio Grande: most of
the year, the river is dry south of El Paso-Juarez. The second stretch of the river is fed by the waters
from the mountains in the state of Chihuahua flowing to the Rio Grande via the Rio Conchos. The
Rio Conchos enters the Rio Grande at Ojinaga, Chihuahua-Presidio, Texas and this water flows to
the Gulf of Mexico. The lower Rio Grande valley of Texas, an area widi a rapidly-growing popula-
tion and a multi-million-dollar irrigated agricultural industry, is dependent on two reservoirs that
are fed mosdy from rainfall in northern Mexico. (In the Texas region, from Falcon Dam just south
of Laredo to Brownsville, about 80 per cent of the water is used by the agricultural industry.
However, outdated irrigation techniques and leaking conveyance systems have been reported to lose
vast amounts of water prior to reaching their intended use.) Needless to say, a transboundary water-
shed approach offers the scope of vision needed to fully understand all of these interactions and
incorporate this understanding into management practices.
The Colorado River, the regions other major watercourse, is 1,440 miles long, extending from
its headwaters in "Wyoming to the Gulf of California in Mexico. Along the way, it flows through
Utah and Colorado, then continues down to the Lower Basin of Nevada, Arizona, and California.
It forms an international boundary between the U.S. state of Arizona and Baja California, Mexico
for 24 miles before continuing into Mexico for some 65 miles.
Besides the Rio Grande and the Colorado River, the border region has seven other federally-
managed riparian corridors: the Gila River; the Yaqui River drainage; the San Pedro; the Rio
Conchos; the Pecos River; the Rio Salado; and the Rio San Juan. In addition, other locally-impor-
-------
San Pedro River. Source: "Watershed at a Watershed, "Arizona State
jr University for Southwest Center for Environmental Research andPolicy.
Photo credit: Joaquin Marruffo.
tant watercourses cross the international border such as the Santa
Cruz River, whose underlying aquifers represent a significant water
source for both Nogales, Arizona and Nogales, Sonora. Finally, the
Tijuana River Basin also plays a role in border-region water supply.
An abundant, diverse collection of flora and fauna depend upon
these riparian areas as habitat. Besides die rivers themselves, associat-
ed cienegas (springs) and resacas (oxbow lakes) provide critical habi-
tat for migrating as well as resident birds and other animals. The San
Pedro River, which straddles the Arizona-Sonora border, has been
identified as a globally significant and threatened watercourse that is
a critical habitat for songbirds migrating between Canada, the
United States, and Mexico.
Management of border region groundwater supplies offers an
additional challenge. In contrast to surface waters, relatively little is
known about their availability, quality, or sustainability. Nor is much
known about how surface waters are affected when groundwater
supplies are depleted by pumping.
Caution is required as communities make major shifts in water
resource supply practices. Some aquifers in the border region are
clearly being overdrafted by groundwater wells whose collective
pumping far exceeds the aquifers' rate of natural replenishment.
Groundwater pumping from wells, conservation measures such as
the lining of canals, and numerous other water management actions
in one locale can affect the other side of the international border. For
instance, regional groundwater flow patterns have been modified by
excessive pumping in the FJ Paso-Ciudad Juarez area, and evidence
suggests that this continually-increasing activity is having trans-
boundary effects.
Practices such as these can lead to conflicts over international
js&griculture near Presidio, Texas is irrigated with water from the Rio Grande.
%Łhoto credit: Laura Pierce.
rights to groundwater. Moreover, if replicated in multiple locations,
it can lead to unfbrseen transboundary effects on critical riparian
areas or on the availability of surface water, with all of the attending
property rights implications. Mitigation actions often can be imple-
mented, and they may, in fact, be beneficial to many parties. But
such measures must first be identified and assessed in a comprehen-
sive manner through critical analysis, including the development of
water budgets and/or groundwater flow models.
Both groundwater and surface water resources on the border
remain seriously threatened by the border region's recent rapid indus-
trialization. The availability of inexpensive labor, accompanied by
trade liberalization, has brought new business to the border and the
workers needed to fill die jobs. These businesses include growing
numbers of border assembly plants (maquiladoras). The population
of the region continues to grow rapidly. Some of the newer residents
live in unincorporated communities, known as "colonias," which sur-
round the urban areas and often kck basic public services including
municipal drinking water, wastewater treatment systems, and solid
waste disposal Even in some of the incorporated areas, the infrastruc-
ture is lacking to adequately handle the environmental consequences
of human and industrial waste generation and disposal.
As a result, border communities face a host of complex social,
political, economic, infrastructure, natural-resource and environ-
mental-quality challenges that will not go away soon. Paramount
among them is how to best handle water problems. Appropriately
applied as a useful data-gathering and planning instrument, a water-
shed approach will go a long way toward addressing the region's
water issues. It also provides a blueprint for strategic approaches to
address other challenges in a manner that promotes sustainability.
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CALIFORNIA
o
TUIW
BAJA
CALIFORNIA
ELEPHANT
RESERVA
1 *.
SONORA
~T
200
200 MILES
300 KILOMETCRS
Map of the United States-Mexico border area, as
delineated by a shared-water resources perspective
Source: United States Department of the Interior, U. S.- Mexico Border Field Coordinating Committee.
PoiuUiRepoiloftlieGoodNeiglibflrQimnnienlalBflaid
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SUBAREA BOUNDARY
DRAINAGE
CITY
NEW MEXICO
FALCON
RESERVOIR
BROWNSVILLE
\HUA
RIO CONCHOS
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§g
Fourth Report of the
to the President and Congress
of the United States
RecommeiMiatioias in, Context
Note: The Good Neighbor Environmental Board encourages the President and Congress of
the United States to provide support that enables movement forward on all five of the follow-
ing recommendations simultaneously.
RECOMMENDATION 1
Institutionalize a border-wide-watershed approach. Enable institution of a watershed approach
as the underlying standard operating procedure for all projects that deal with water resources man-
agement along the U.S. border with Mexico. Concentrate initially on key priority watersheds and
then expand the effort.
CONTEXT
Managing and maintaining the quantity and quality of limited water resources is a persistent
critical issue for the border area. The universal adoption of a systematic watershed approach is an
essential first step to align water resources management with sustainable development. Delineating
the borders hydrologieally-defined geographic areas (its watersheds) enables.all levels of govern-
ment, as well as the non-governmental sector, to work together across jurisdictional lines on a com-
mon goal thatis based on long-term sustarnabiHty.- '/••-.. •':.."•
A watershed approach provides a template to overlay data on health indicators, economic devel-
opment needs, public health needs, socio-economic needs, natural resources, and other factors to
produce a comprehensive watershed profile. This profile can then be consistently and universally
applied to help understand the complex and sometimes competing interests of sustainable develop-
ment issues along the bordet As Ingram, Laney, and Gillilan (1995) point out, water and politics
are everywhere intertwined; only the pattern of the; braid varies. No pattern is more complex and
convoluted than the fragmented legal and institutional structures encountered at the border.
In the last several years, great strides have been made as water managers on both sides 6f the bor-
der have come to realize that strategically sharing binational watersheds requires, first of all, looking
at them as a single unit. The jtiext stepis open exchange of data, a process founded on the concept
that a watershed boundary can become the mechanism to connect and create a forum for interna-
tional collaboration. The result is informed managementof the wholesystem, notjustapart. -
43...
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Some federal agency work already has begun. Basic principles and
techniques have been identified and some basic materials produced.
For example, die Department of Interior has published a fact sheet
widi a map diat delineates die border from a watershed perspective.
Its purpose is to serve as a basic planning unit for carrying out more
in-depth border watershed identification and analysis. In addition,
the U.S.-Mexico Border XXI Program has established a Water
\YA>rkgroup whose efforts include encouraging governmental and
non-governmental groups to coordinate their efforts using a water-
shed lens as dieir common point of reference.
The research community also is doing its part. The Southwest
Center for Environmental Research and Policy (SCERP) is funding
a Transboundary Watershed Research Program that focuses on bina-
tional watersheds widi inconsistent data gathering, differing
approaches to protection, and disjointed planning and management.
The highly urbanized Tijuana River watershed and the mosdy wild
San Pedro watershed are being studied by binational teams of
hydrologists, ccologists, sociologists, economists, urban planners,
resource managers and educators. SCERP also funded a project to
produce a watershed-based model for sustainable development using
the Upper San Pedro basin as die case in point.
Despite diese encouraging signs, instituting a watershed-level
approach diroughout die border region still has far to go. When the
short-term water resource needs of particular groups of users are
pressing, die benefits of a watershed approach may appear much less
obvious. Large watershed areas can be unwieldy, and they can be
very challenging to organize effectively. The priorities for communi-
ties and habitats in one portion of a watershed may not be the prior-
ities of anodier portion of die same watershed. In such cases, using a
"subwatershed" lens, diat is, looking at portions of watersheds, may
be a useful way to begin building support. By focusing watershed
efforts on smaller geographic regions (e.g. the upper, middle and
lower San Pedro River watersheds), communities can focus more
easily on common issues and solutions.
GOAL
That a systematic watershed approach to mapping and display-
ing sustainable development indicators be used in die United States
border region widi Mexico. That diis approach be adopted by all lev-
els of government, die academic community, states, tribal govern-
ments, and die private sector to the extent practicable.
IMMEDIATE OBJECTIVES
• That a limited number of priority border-region watersheds be
identified. These priority watersheds would include die major
sources of water for die region and might include the following:
Rio Grande, San Pedro, Santa Cruz, Lower Colorado, Tijuana,
and New River.
• That priority watersheds be assessed to determine the resources
required to fully institute a watershed approach. That, where
appropriate, additional targeted resources are made available to
these watersheds.
• That the concept of "subwatersheds" is encouraged and support-
ed, where appropriate, as a building block toward instituting a
full watershed approach.
MEASURE OF SUCCESS
Initially, for a subset of border-region priority watersheds, all
organizations participating in water resources research, analysis, poli-
cy making, management, and odier decision making roles in the
four U.S. border states consistendy use a systematic watershed
approach in their work with these watersheds. This subset of water-
sheds becomes a template for including other border watersheds in
the endeavor until, eventually, all border-region watersheds are
included in the approach,
Other decision makers whose work affects watersheds, such as
industrial park developers and government planners, factor diese
potential effects into their decisions.
RECOMMENDATIONS
Support data-gadiering and analysis that generates a clear picture
of border watersheds. Using, initially, a subset of priority watersheds,
strengthen current efforts to collect, integrate, and analyze the data
needed to flesh out watershed-based planning frameworks and fully
understand bodi existing conditions and potential future scenarios
in them. Expand this effort until, eventually, sufficient data is garn-
ered and available for all border-region watersheds so that a water-
shed approach can be fully implemented.
CONTEXT
Maps and digital geospatial data products are essential tools for
understanding the complex set of interactions taking place within
the watersheds shared by die United States and Mexico. Scientists
and land managers from both countries need current, accurate, and
binationally-compatible geospatial information to monitor die
effects of agricultural, industrial and municipal development, as well
as odier changes in border conditions. Although some of diese tools
are becoming available, the information still is somewhat scattered
and under-utilized, in part because die information may be incom-
patible across databases. Collecting, collating, reconciling and merg-
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ing datafiles from both countries can be daunting. Even basic infor-
mation such as soil type, habitat type, meteorology, and land use
have very different scales, classification types, and dates of collection
for the two countries.
Lack of data means that current and projected water budgets are
very challenging to develop with any precision.
U.S. federal agencies continue to work to fill these data gaps. For
instance, the U.S. Geological Survey within the Department of the
Interior and Mexico's Instituto Nacional de Estadistica, Geograflca y
Infbrmatica (INEGI) are developing joint standards for digital
geospatial data sets under a $30 million, ten- to twelve-year project
called the U.S.-Mexico Transboundary Mapping Initiative. Products
will include imagery and integrated digital geospatial data as well as
graphic maps for the U.S.-Mexico border region.
On a cross-border level, the IBWC has developed a data set for
historical flow records of transboundary waters and compiled select-
ed water quality data for the last 100 years. IBWC also has coordi-
nated information exchange across countries about conditions in
shared surface and groundwater resources. In the case of the Rio
Grande and Colorado River basins, some of the information
exchange even extends to areas of the rivers that are officially consid-
ered beyond the border region.
GOALS
That the following be identified: total universe of data needed,
data currendy available and their sources, data gaps, and the require-
ments of a programmatic system needed to maintain data availability.
That funding for the necessary data collection is available at the
appropriate level, be it federal, tribal, state, county, or local.
That Federal agencies, working closely within the partnerships
formed as a result of the Presidents Clean Water Action Plan, be pro-
vided with specific resources dedicated to collect hydrologic, geolog-
ic and water use data and perform vital watershed analyses to
promote sustainable water management practices in critical •water-
sheds in the border region.
IMMEDIATE OBJECTIVE
• That the U.S. Department of Agriculture, the Department of
the Interior, and the U.S. Environmental Protection Agency
(EPA) lead an effort to determine the most appropriate tools for
identifying data gaps, including Geographic Information
Systems, considering factors such as cost-effectiveness, manage-
ment, and access.
MEASURE OF SUCCESS
Eventually, data management systems containing comprehensive
data to support comprehensive border-area water management plans
for all border-region watersheds are widely available. The most criti-
cal watersheds have computer flow simulation models prepared
binationally. These systems serve both near and long-term technical
and policy decisions. They allow for refinement and further develop-
ment of the data in response to evolving conditions and feedback
from management practices.
RECOMMENDATION 3
Highlight and support water resource management practices
along the border that are based on a watershed approach. Develop a
Border-Region Water Strategic Plan that becomes a useful opera-
tional tool for day-to-day management decisions about individual
watersheds made by U.S. state, county, municipal and tribal decision
makers, and also is available to other interested groups. The plan
should identify key transboundary water quality and quantity issues,
present core components of a transboundary watershed analysis,
include preliminary options for addressing diese issues, and comple-
ment existing state, local and tribal government watershed-based
plans and programs.
CONTEXT
In the United States, authority for the management of ground-
water and surface water resources largely resides with state govern-
ment. However, implementation of water-related projects, and the
determination of land zoning decisions or growth issues, is handled
at the county and municipal level. Sovereign tribal governments have
both land and water management authorities.
Given the key role they play, state and local agencies and tribal
governments must be actively involved in implementation of a water-
shed approach in critical water management areas along the border.
This need for meaningful participation — in fact, leadership — by
tribal, state and local governmental entities, may initially make the
watershed approach seem unwieldy and challenging. Nevertheless,
the effort is vital. Federal agencies, especially those such as the
Department of Interior, the Environmental Protection Agency, and
the Department of Agriculture, should leverage their existing roles to
promote collaboration across jurisdictional boundaries.
Border-region states already are drawing on existing pieces of leg-
islation to bolster their watershed-directed efforts. For instance,
under the federal Clean Water Act, states must, and tribal govern-
ments may, define how water bodies will be used and establish stan-
dards diat serve as goals for water quality. The Texas Natural
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Resource Conservation Commission (TRNCC) has developed an
approach to watershed management that has evolved from this fed-
eral Act as well as from a 1991 state legislative mandate, which creat-
ed a watershed-based water quality assessment program. By coupling
identified water quality problems with classified water segments, the
TNRCC was able to prioritize watersheds for restoration. In a sepa-
rate project, it partnered with the IBWC in its Clean Rivers Program
for the Rio Grande, an initiative to extend scientific knowledge of
the river basin in both countries.
In Arizona, the Department of "Water Resources is drawing on
provisions widiin a twenty-year-old state-level Act to promote water-
shed-based decisions. Long before the terms "sustainability" and
"watershed" were in vogue, the 1980 Groundwater Management
Act called for establishing management plans for the states critical
groundwatcr areas. Boundaries for these groundwater basins, called
"Active Management Areas," predominandy are based on hydro-
geologic features that control the movement of water. The statutes
even go so far as to prevent the subdivision of land within these areas
unless a 100-year assured water supply, of both adequate quantity
and quality, can be demonstrated consistent with achievement of the
area's water management goals.
Management plans for individual Active Management Areas
(AMAs) under die Act are targeted to the characteristics of each
basin. For instance, die plan for Santa Cruz AMA (which includes
Nogalcs) includes specific provisions for fostering international
cooperation based on recognizing die transboundary nature of this
watershed. Its mandated goal is based on the principle of preventing
long-term water table declines. Fundamentally, it seeks to preserve
surface water flows and thereby protect a vibrant riparian habitat in
the binational Santa Cruz River.
California and New Mexico, the odier two U.S. border states,
also arc doing their part.
What about the role of municipalities and local governments? In
many cases, they are carrying out their management responsibilities
amidst tremendous pressure from immediate needs that have to be
met, leaving litde time to step back and consider the broader view.
Local decision makers face challenges such as how best to increase
water supplies for their own growing populations. They are not
always in a position to consider the full range of potential variables
involved. These variables may include upstream or transboundary
infrastructure projects on the drawing board, as well as the down-
stream impacts of particular projects on other users. Perhaps even
more significandy, variables such as the carrying capacity and future
availability of the water resources may not be factored into individual
towns' deliberations.
CZommunity-to-cornmunity cooperation up and down the banks
of the border regions rivers faces numerous obstacles. Information is
lacking, or has been compiled but is not easily accessible. Different
measurement systems make data sharing and comparison difficult.
Finally, often there is no legislative incentive to cooperate.
But these obstacles have to be overcome. Infrastructure needs in
any given community must be integrated with the needs of upstream
and downstream users on both sides of the border. Ecosystem needs
for adequate stream flows must also be factored into the discussion.
And the water needs for economic activities such as fishing and
recreation, which rely on both instream flows and freshwater flows to
estuaries, also need to be part of the discussion. Localities must be
encouraged to think and act strategically. Just as importandy, they
must have the means to do so.
U.S.-Mexico collaboration can help to enable states and locali-
ties to fulfill their respective roles in the watershed scenario. For
instance, the four U.S. and six Mexican border states have been
sharing experiences through a mechanism called the "Ten States
Retreat." This initiative brings together the ten states' environmen-
tal Secretaries on an annual basis to compare notes and explore new-
avenues for cooperation.
In addition, the U.S. Department of the Interior (DOI) and the
Mexican Secretarfa de Medio Ambiente, Recursos Naturales y Pesca
(SEMARNAP) are working together on the management of several
transboundary protected areas. These areas include die San Pedro
River Basin in Arizona/Sonora, the Big Bend National Park/Maderas
del Carmen Flora area in Texas/Coahuila, and the Santa Helena area
in Texas/Chihuahua.
IBWC also is involved in promoting cross-border cooperation
when it comes to watershed-based management practices. In part-
nership with DOI and SEMARNAP, the Commission sponsored a
binational symposium to discuss migratory bird habitat, ecosystem
processes, endangered species habitat, and water quantity and quali-
ty on the Rio Grande. One outcome was a joint declaration calling
for coordinating policies, strengthening cooperative actions, examin-
ing opportunities for maintaining minimum flows, and undertaking
research on the stretch of the river from Fort Quitman to Amistad
Dam in Texas. A binational taskforce has been created to follow up
on the declaration.
Federal agencies, along with other levels of government, can help
states, localities, and tribes effectively manage border-region water
resources by operating federal policy research and funding programs
in away that creates opportunities to reach out across traditional lines
of authority and bridge gaps between areas of responsibility. Sound
watershed management practices on the border must continue to be
ftinlliEepflitorilieGoodNeiglilJorBimiiiiiEntalBflard
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DOJ-SEMARNAP COOPERATION PILOT AREAS
Name
Pilot Sister Area #1
Organ Pipe Cactus
National Monument
Cabea Prieta National
Wildlife Refuge
Reserva de la Blosfera El
Pinacate y Gran Desierto de Altar
Reserva de la Biosfero Alto Golfo
de California y Delta
del Rio Colorado
Imperial National Wildlife Refuge
Pilot Sister Area #2
Big Bend National Park
Area de Proteccion de Flora y
Fauna Maderas Del Carman
Area de Proteccion de Flora y
Fauna Canon Santa Elena
Date Established
In 1 937 named a NM then designated
a Biosphere Reserve in 1 976
Established in 1 939 as a Wildlife Refuge
then added to the wilderness system in 1990
In 1 979 set aside as a Forest Protected Zone and Wildlife
Refuge; in 1982 named an ecological Reserve and
designated as a Biosphere Reserve in 1 993
First recognized in 1 955 as a Refuge
Zone then established as a Biosphere
Reserve on June 15, 1993
Designated in 1941
In 1 944 established as a NP then
designated a Biosphere Reserve in 1 976
November 7, 1 994 as an APFF
November 7, 1 994 as an APFF
State
Arizona,
United States
Arizona,
United States
Sonora,
Mexico
Baja
California,
Mexico
California,
United States
Texas,
United States
Coahuila,
Mexico
Chihuahua,
Mexico
Acres
330,689
860,000
1,764,953
2,308,847
25,125
801,000
514,701
684,709
Source: Mark J. Spalding and Joanna Salazar "Adjacent US-Mexico Border Natural Protected Areas: Protection Management and
Cooperation" chapterfor The Environment of Greater Mexico to be published by the Regents of the University of California (forthcom-
ing in 2000).
based on sound water infrastructure needs assessments. These needs
assessments, in turn, should be based on solid sustainability criteria so
diat ensuing actions are more than stop-gap measures.
The federal government also can continue to provide incentives
for non-governmental entities to take part. Groups such as private
landowners and users, for instance, are critical team members.
Grazing land constitutes die single largest watershed land cover type
along the U.S.-Mexico border, and so well-managed, healthy grazing
lands, both public and private, can make a significant difference in
quickening the pace toward a watershed approach on the border.
To encourage conservation practices on private land across the
nation, a federal initiative is being proposed that would provide
annual payments to farmers and ranchers who implement various
conservation practices. The practices would include comprehensive
nutrient management, prescribed grazing, and partial field conserva-
tion practices such as grassed waterways and windbreaks. By encour-
aging sound private land stewardship, a key piece of the border
watershed protection puzzle could be put into place.-
A Border-Region Strategic Water Plan would harness contribu-
tions from all of these jurisdictional levels and from many other
quarters. It would build on what states, municipalities, and other
jurisdictions already are undertaking related to strategic water supply
management. Though it could include straightforward components
such as water and wastewater infrastructure project needs on a "pipe
and valve" level, more significandy, it would help to identify where
pending water management problems may be looming, as yet unde-
tected or inadequately addressed. It would provide a critical analysis
and description of water management issues along the whole length
of the border. Thus, it would help to answer the following questions:
Where will the shortages be? How long before particular supplies are
tapped out at predicted rates of growth? How long before sole-source
aquifers become unusable due to contamination? Where are there
transboundary problems that require binational clean-up solutions?
GOALS
That a Border-Region Strategic Water Plan is developed and used
as a backdrop for day-to-day management decisions about individ-
ual watersheds made by U.S. state, county, municipal and tribal
decision makers, and is made available to odiers as weE. That many
different types of affected parties are involved in the development,
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implementation, and ongoing evolution of the Plan so that their
experience, expertise, and priorities can be incorporated.
That the four U.S. border states, as well as border-region munici-
pnlitics, be supported as key players in implementation of watershed-
based management practices, especially in the case of transboundary
water bodies.
IMMEDIATE OBJECTIVES
• That groundwork be laid for development of a Border-Region
Strategic 'SX&ter Plan by bringing together interested governmen-
tal and non-governmental parties to discuss its creation and
implementation. That initial discussions focus on identifying
and publicizing existing best practices that could highlighted in
the Plan and existing resources for developing it.
• That the same subset of priority watersheds selected for develop-
ing a watershed framework and gathering comprehensive data
(see Recommendations 1 and 2) be targeted as priorities for sup-
port in terms of encouraging sustainable management practices.
That dicsc management practices are optimally compatible
across border state boundaries for comparison purposes and, at
the same time, reflect state and local needs and priorities.
• That existing management models and best practices incorporat-
ing a watershed-based management approach be identified, high-
lighted, and explored for applicability elsewhere along the border.
MEASURES OF SUCCESS
In the near term, specific priority environmental infrastructure
projects arc in place and are continuously managed in a way diat
reflects a watershed management approach. These projects address
critical needs such as providing safe drinking water, adequate waste-
water treatment, and effective management of storm water runoff. The
result is improved quality of life as well as more sustainable ecosystems.
Eventually, the watershed management issues at all points on the
border can be linked to and addressed through an overarching
Border-Region Strategic Water Plan. The Plan is based on the need
to assure long-term watershed sustainability. It enables potential
problems to be anticipated and opportunities identified, resulting in
more effective management of the region's water resources by state,
local and tribal authorities in cooperation with appropriate federal
and Mexican authorities whenever needed.
RECOMMENDATION 4
Encourage the full participation of tribal governments, along with
binational organizations, federal, state and local governments and
Other border groups, in developing and implementing a watershed
approach. Ensure diat the training, funding and physical infrastruc-
ture needs of all tribal governments, along with other border govern-
mental agencies and population groups, are fully addressed when
developing and implementing a watershed management approach.
CONTEXT
A total of 26 Federally Designated Tribes are located within the
U.S. portion of die border region — 2 in Texas, 4 in Arizona and 20
in California. Tribal governments in the U.S. not only are border
populations and landowners, but also resource managers and regula-
tory authorities whose participation is critical to comprehensive
environmental management in the border region.
Despite dieir key role, the interests and needs of tribal govern-
ments historically have been under-represented in overall water
resources planning and management deliberations. Involvement has
been hampered by lack of a systematic approach to including these
valuable government entities, as well as other neglected border popu-
lations, in these activities. Good Neighbor strongly encourages broad
recognition of their legal status, rights, and responsibilities.
To increase communication and ensure meaningful tribal gov-
ernment participation, the following operational steps should be
pursued: government-to-government consultation, robust outreach,
targeted technical assistance, and training and funding to support
the watershed approach and watershed protection. Numerous ongo-
ing efforts would benefit from either initial or increased tribal gov-
ernment involvement, for example, diose involving the Colorado
River, New River/Salton Sea, Rio Grande, Santa Cruz River and
Tijuana River watersheds.
Some progress on the federal front is evident. Good Neighbor
applauds EPA for the recent inclusion of representatives of tribal gov-
ernments as members of the Border XXI workgroups. It also applauds
the U. S. Congress and EPA for funding tribal government water
resources protection activities, and drinking water and wastewater
infrastructure improvements, under the Clean Water Act and Safe
Drinking Water Act. However, significandy more funding is needed
to support the full development of tribal government water resources
protection programs. Similarly, funds set aside through EPA for bor-
der tribal government infrastructure projects were severely inadequate
to meet the needs of all tribal governments in the border region. The
Board recommends that the EPA set-aside grant program be renewed
and increased, and diat Clean Water Act funding for tribal govern-
ments be similarly increased, with watershed management in mind.
Besides federal agency efforts, full tribal government involvement
is especially important in three international border-region institu-
tions: die Border Environment Cooperation Commission (BECC),
PniHlliHepflrtofllieGiHidNflglilHirMflDientalBoari
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Tribal Lands within the US/Mexico 100 km Border Region
1 - U.S. border tribes are shown in this GIS overlay map. The map was created by examining the list of U.S. Federally Recognized Tribes that are within one hun-
A dred kilometers of the border. A Federally Recognized Tribe can be a Band, a Bancheria Pueblo or a Nation. Source: U.S. Environmental Protection Agency,
the North. American Development Bank (NADBank), and the
International Boundary and "Water Commission (IBWC). When
BECC and NADBank were created, tribal governments were not
included in the set-up negotiations and, even now, they are not for-
mally represented on their Boards,
While Good Neighbor understands that there are no plans to for-
mally renegotiate the BECC and NADBank agreements in terms of
broadening the composition of their Boards, it nevertheless reminds
all Federal agencies, and their representatives, of the U. S. govern-
ments trust responsibility to tribal governments. Although the
BECC and the NADBank have undertaken some outreach to tribal
governments, a perception persists that access to these institutions is
not readily available. It is, therefore, recommended that BECC and
NADBank continue and enhance their outreach efforts to ensure that
tribal governments, like all border populations, have full access to
these new institutions. More specifically, Good Neighbor strongly
recommends that a tribal representative be appointed to the BECC
Advisory Council.
IBWC is one of the border regions oldest binational institutions.
It was set up as a treaty-mandated organization that reports to the
U.S. and Mexican federal governments and does not have a Board.
Nevertheless, the IBWC has other mechanisms at its disposal to
involve tribal governments more directly. Good Neighbor supports
the efforts of IBWC to open participation on the Commission to
others through joint cooperative projects.
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GOALS
That no tribal governments, or odier border populations, are left
out of die decision-making process, or the opportunities to access
sources of funding and/or technical assistance while efforts are under
way to seek long-term border water management planning through
the initial step of taking a watershed approach.
That the interests of tribal governments continue to be repre-
sented in border-area water resources management decision-making.
That tribal needs are identified and addressed as a watershed
approach is institutionalized, including gathering needed data and
applying a. watershed perspective to daily management practices in
the border region.
IMMEDIATE OBJECTIVES
• That U. S. EPA convene a workshop involving tribal govern-
ment leaders by the year 2001 to strategize tribal government
options to address watershed cleanup and protection.
• That U. S. EPA complete a Border Tribal Government Drinking
Water and "Wastewater Infrastructure Needs Assessment within
one year.
• That BECC, NADBank, and IEWC prepare a report on how
they arc addressing the concerns of tribal governments within
one year.
• That U.S. EPA report within one year on how it is addressing the
needs of tribal governments outside the context of BECC,
NADBank, and IBWC, and whether by excusing tribal govern-
ments from BECC certification, it still is ensuring infrastructure
sustainable development goals.
MEASURE OF SUCCESS
Tribal governments are fully involved early on and throughout
the process of instituting and maintaining a border watershed
approach process, including developing a framework, gathering
needed data, and putting the information to work through sustain-
able watershed management practices.
RECOMMENDATION 5
Provide continued federal budgetary support for actions and pro-
grams consistent •with the diemes and purposes of a watershed
approach for die border region. The Board especially wishes to
emphasize die importance and urgency of continued and full budg-
etary support for binational commitments to address border envi-
ronmental issues within die context of a watershed approach.
CONTEXT
Although philosophical commitment is a key ingredient of put-
ting the watershed approach into action, so, too, is financial support.
If the U.S.-Mexico border region is to address its pressing water
problems in a strategic manner through a watershed approach, die
funds to make it happen must be made available. The private sector
as well as local, state, and tribal governments have a role to play, but
only limited success can be had unless full federal financial support is
forthcoming. Past and current funding efforts are resulting in good
progress in certain areas, but more extensive and more carefully tar-
geted federal funds are needed.
In the view of Good Neighbor, one of die areas in which contin-
ued federal funding will make the most difference is the agreement
set up parallel to the North American Free Trade Agreement (NAF-
TA). In 1993, the U.S. and Mexico concluded an unprecedented
agreement to address environmental infrastructure needs in tandem
with trade liberalization. This side agreement called for the establish-
ment of die Border Environment Cooperation Commission
(BECC) and the North American Development Bank (NADBank),
two related institutions that have become the primary vehicles for
addressing the side effects of the explosive growdi on die border.
Despite what many believe was a slow start, the BECC and
NADBank are now starting to show real progress in addressing these
infrastructure needs. A significant proportion of the BECC-
NADBank projects involve activities that direcdy affect border
watersheds. According to a June 22nd BECC press release, BECC
has certified 40 water, wastewater and municipal solid waste infra-
structure projects. These projects will represent a total estimated
investment of $976 million, benefitting almost 8 million border res-
idents. Twenty-three (23) certified projects are located in the United
States; seventeen (17) are located in Mexico. Over $17 million has
been approved in Technical Assistance for 125 projects in 95 border
communities. This is the largest number of environmental projects
ever underway in the region, but much remains to be done.
Estimates of infrastructure needs over the first decade of the twenty-
first century range from $2.1 billion to $3.2 billion.
The financial viability of BECC-NADBank projects depends
heavily on the infusion of grant capital from EPA. The Border
Environment Infrastructure Fund (BEIF), through which
NADBank makes grant funding available to certified projects, has
been crucial in recent BECC-NADBank successes. The BEIF pro-
gram was originally envisioned as a seven-year program with $100
million in grants appropriated per year. However, in Fiscal Year
2000, Congress cut the Presidents request in half to $50 million. As
a result, BECC and NADBank have been placed in the difficult
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position, in some cases, of continuing to certify projects with the
understanding that the BEIF funds are not currently available.
Also of concern is the operating budget for the BECC, a relative-
ly small budget item, but one that is crucial since BECC certification
is a necessary first step to carrying out infrastructure projects under
the NAFTA side agreement. The U.S. contribution to BECC's oper-
ating budget had been planned to rise to $2.1 million by FY-2000,
but has been straight lined at approximately $1.53 million for the
past two fiscal years. As a result, it will be difficult if not impossible
for the BECC to provide the necessary resources to develop and cer-
tify projects in such areas as solid waste, which also affects watershed
approach planning.
On April 14-15, 2000, representatives of the four border states
and more than 40 border communities came to "Washington to
emphasize the need for border infrastructure expansion to continue
under the BECC-NADBank binational framework Among the key
issues was the need to maintain full funding in the Presidents FY-
2001 budget for the BEIF grant program ($100 million) and the
U.S. portion of the BECC operating budget ($2.1 million). Several
border state members of Congress and the Senate expressed their sup-
port for full funding, but noted the difficulty of convincing members
from outside the border region of the urgency of addressing diis need.
A new dimension of the funding issue was introduced at the
annual meeting of the NADBank Board on July 11, 2000, when a
resolution was passed calling for an accelerated effort to maximize
the use of NADBank lending resources. Mexico and the United
States will be working closely with NADBank and BECC to identify
potential areas for what is being called "mandate expansion," i.e.,
new environmental sectors in which NADBank lending resources
can be brought to bear. Also under consideration is a proposal to
expand the geographic area in which BECC-NADBank projects
would be authorized (currently 100 km. on each side of the border).
The two governments have agreed to develop a mandate expansion
blueprint by September of 2000, and a paper prepared by
NADBank on the mandate expansion proposals has been circulated
for public comment.
BECC and NADBank's contributions are only one part of the
watershed problem solving approach. Continued federal funding to
address other watershed-related issues also is required if a watershed
approach is to become a way of life in the border region. These
issues include sustainable management of source waters, and protec-
tion of aquatic and riparian habitat, both of which need continued
federal support.
According to the IEWC, an environmental study effort it is car-
rying out from 2000-2001 is expected to begin identifying river
GoodNeiglorwelcoffles local citizens
The Good Neighbor Environmental Board values
and encourages input from local citizens. Its meet-
ings are open to the public and advertised national-
ly and locally. Meeting agendas usually include
scheduled reports by representatives of local groups
that address environmental issues, as well as time
set aside for open comment from the public.
. During recent meetings, Good Neighbor member-
ship has benefited from the sincere and knowl-
edgeable input _of a number of private citizens,
community-based organizations, for-profit groups
and public agencies. The selection below is repre-
sentative of the variety of input received from the
public during meetings:
• Private citizens concerned about the environ-
mental impact of industry
• Academic consortia wishing to better coordi-
nate environmental assessment processes
• Congressional staff requesting more information
regarding board activities
• Community-based advocacy groups concerned
about growth and environmental contamination
• Maqujladora representatives wishing to share its
environmental protection efforts
• An association of tribal governments wishing to
share information regarding its environmental
programs, and
• A state-funded border health program wishing
to share its approach to border health
• Federal agencies requesting advice regarding
assessment and planning projects.
Good Neighbor is taking steps to maximize public
input by enhancing outreach prior to meetings.
Board members invite private citizens and public
and private groups to address the board when
meetings are held in their communities. Interested
individuals and groups are encouraged to contact
the board chairperson, or the Designated Federal
Officer, prior to the meeting to find out more
details. The public is welcome to attend the entire
meeting. Input from local citizens during that por-
tion specifically set aside for public comment is
especially encouraged.
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restoration efforts that, if implemented, will require hundreds of
millions of dollars over die next decade for just the international
boundary areas. Of particular importance, the Colorado River effort
includes the delta inMexico, a problem-area of worldwide attention.
The Rio Grande effort from El Paso to Amistad Dam includes wild
and scenic areas and subbasins in die United States and Mexico.
Groundwater data development needs identified by the USGS and
the IBWC are in die $100 million plus range. Additional efforts to
solve problems, such as die need for additional monitoring wells and
development of international groundwater agreements, may more
dian double that amount.
GOALS
That die U.S. and Mexico "stay die course" in carrying out the
planned environmental infrastructure improvements in die border
region. That Congress retain full annual funding for the BEIF grant
program ($100 million per year) and die U.S. portion of die BECC
operating budget ($2.1 million) in die Presidents FY-2Q01 budget.
IMMEDIATE OBJECTIVES
• That BECC be provided with die resources necessary to move
forward on die overall strategic plan for infrastructure called for
in the March 2000 GAO Report.
• This plan should adhere to sustainable development criteria,
including a watershed approach.
MEASURES OF SUCCESS
BECC and NADBank are able to carry out their infrastructure
development plans over die next decade. A minimum standard of
success would be fulfillment of die recent NADBank projection for
$2.1 billion in funding over ten years for water and wastewater proj-
ects, of which grant funding will account for $1 billion. Timely
development and certification of projects by the BECC will be cru-
cial to diis process, as will maintaining requested levels of BECC
operating funds.
Odier, non-infrastructure efforts related to building and sustaining
a watershed approach, such as river restoration, have the funds to be
fidly implemented and dius contribute to water resource sustainability.
Conclusions:
1A start has been made, but more
Pneeds to be done. This perhaps
overused phrase, nonetheless, provides a fitting conclusion
when assessing progress toward institutionalizing a watershed
approach to solve water infrastructure challenges along die
U.S. border with Mexico. The five recommendations con-
tained in diis Fourth Report to the President and Congress of
the United States must be seen within die context of water-
shed approach efforts already underway. The Good Neighbor
Environmental Board commends these efforts. At die same
time, they are not enough.
On the most basic level, water development and infrastruc-
ture planning on the border must better incorporate die con-
cept of a water body's "need" to function in ecological good
healdi. This need must be viewed as equally valid to a commu-
nity's need for safe drinking water, as a sort of natural capital
that ultimately sustains border quality of life and economy.
After all, in the longer term, failure to address die former will
have dire consequences for the latter. Bringing a watershed
approach to planning will help ensure that ecological processes
are maintained as communities grow. By starting from a
watershed perspective, border watersheds' ability to provide
surrounding communities with healdiy water into die future
will be protected.
Expanded data collection and research can help to illumi-
nate the often complex interactions and hydrological processes
that watersheds manifest; results from surface and groundwa-
ter interactions is just one example. Understanding these
interactions is crucial to better understanding the limits of
border water supply sources.
To put theory into practice, a watershed approach should
become an integral component of border water infrastructure
planning. Communities applying for infrastructure funding
for major water development projects should be required to
submit plans that consider its watershed implications and
thereby promote greater sustainability as well as more creative
solutions to water supply management problems. To assist in
this process, funding request forms should be accompanied by
concrete examples of what a watershed approach means.
Offering concrete, real-world examples of management
FouilhRfiHirtofIlie&HHlHdgIiliorBi?iroDinentalBflart
-------
practices that incorporate a watershed approach also provides a start-
ing point for engaging communities and planners in ongoing discus-
sions on best practices for water infrastructure development projects.
To encourage daily management practices that shift away from stop-
gap measures and move toward sustainability, a list of sources of
technical assistance funds for implementation also should be made
widely available.
At die end of the day, however, only limited progress will be made
unless one essential ingredient is present: universal recognition of the
deep, diverse cultural values that drive daily life in the border region.
Cultural values and environmental values are closely linked. A water-
shed approach will garner broad support only if the process is based
on respect for traditional local knowledge arid cultural practices
Conversely, for the approach to gain a strong foothold, those who val-
ue traditional ways must also be receptive to new tools, practices, and
people who can augment the good work that already has been done.
Sensitivity to others' perspectives is the foundation on which col-
laboration around watersheds must rest. The fundamental interests
of the local community may be different than those of the sponsor-
ing agencies. It is important to engage members of the community
and avoid imposing narrow agendas which do not address the per-
ceived needs and concerns of local representatives. It also is impor-
tant to pursue the concept of equity among all participants in such
efforts, while also seeking to address the needs of the environment
and habitat, which may lack a speaking voice.
"While there is a need to address water management issues on a
large scale basis, it is important to also recognize that smaller scale
issues may be of greatest interest to local communities. Participants
in a watershed effort should include all stakeholders, and the likeli-
hood of cooperative success is greater if it is clear to everyone that
they can benefit from the solutions identified. There is no reason.
why such watershed groups cannot be composed of stakeholders
from both sides of the international border. This diversity enriches
discussion and reinforces the basic premise that watersheds, like pol-
lution, ignore political boundaries. More information exchange and
greater transparency throughout the process helps to better antici-
pate and resolve potential conflicts over the limited supply of water
that exists in the border region.
The next several years will present new opportunities — and
challenges — for the border region, as national leadership changes
unfold in both Mexico and the United States. It is a time in
which environmental and infrastructure successes from the
past,. and the people who helped to bring them about, must
be integrated into the new system so that decisions about sus-
tainability, especially as they relate to watersheds, have the full
benefit of wisdom from the past and visions for the future.
— "jaii
_
U.S.-Mexico bridge crossing at Roma, Texas. Photo credit: Laura Pierce.
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Tlie Binational Dimension
EPA'sBorderXXl Program
I. Introduction
II. Border XXI Background
III. GNEB Perspectives
IV. Progress on the Border XXI Strategies
a. Ensure Public Involvement
b. Build Capacity and Decentralize
Environmental Management
c. Ensure Interagency Cooperation
V. Progress Toward the Border XXI Mission and Goal
VI. Other Border XXI Issues
VII. Conclusions
26
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27
28
30
31
33
35
36
•-•v- 25 '-'-'•
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I. Introduction1
The Good Neighbor Environmental Board (GNEB or Board) is
an advisory committee to the President and Congress of the United
States. It was created by the Enterprise for the Americas Act of 1992
and is administered by the U.S. Environmental Protection Agency
(EPA) to provide advice on environmental and sustainable develop-
ment issues along the U.S.-Mexico border. The 25-member board is
comprised of representatives from federal, tribal, state, and local gov-
ernment, non-governmental organizations (NGOs), academia, pri-
vate organizations, and die community.
At die June 1999 GNEB meeting, EPA approached the Board to
explore die possibility of developing an independent assessment of
die Border XXI Program for this Progress Report. This Border XXI
Progress Report has been developed because the conclusion of die
five-year planning period is approaching, and its timing roughly
coincides with die end of the Clinton and Zedillo administrations in
die United States and Mexico. EPAs stated reason for this request
was to ensure there was an outside entity to evaluate how Border
XXI Program activities are moving toward meeting and measuring
program goals. The GNEB agreed diat die inclusion of its independ-
ent assessment of die Border XXI Program would enhance the
report's utility.
This GNEB "assessment" for the Border XXI Progress Report is
die Board's product. The EPA agreed to incorporate it as an unedited
addendum to die Progress Report. The Board's goal was, in part, to
evaluate resource commitments and progress on Border XXI objec-
tives on a policy basis. The Board does not have die time or resources
to examine and evaluate the quantitative data being assembled in the
Border XXI Program as a whole. As such, we have chosen to focus
on die Mission, Goal, and diree Strategies described in die Border
XXI Framework Document.
The Board places much emphasis on transboundary conditions
and activities due to die strong binational links and relationships
diat characterize the U.S.-Mexico border region. However, before
doing so, we note that under its charter, the GNEB covers those
issues inside the U.S. territory and does not presume to suggest
actions that should be undertaken by Mexico. This said, we must
fulfill our obligation to inform the President and Congress of trans-
boundary environmental impacts on U.S. territory, as well as their
sources and causes because it is direcdy relevant to spending U.S. tax
dollars in Mexico dirough grants and other programs. Any of our
observations about Mexico in this report are informed by our discus-
sions widi our Mexican counterpart, die Consejo Consultivo para el
Desarollo Sustentable de Region 1 (Advisory Board for Sustainable
Development in Region 1), and by its assessment of Border XXI that
was prepared in parallel with ours.
Widi its diverse representation, the GNEB can bring to bear a
comprehensive understanding of U.S.-Mexico border environmen-
tal and infrastructure issues. As a consensus-driven body with
numerous perspectives, die Boards views are sometimes quite
diverse. In the spirit of inclusiveness, disparate views are communi-
cated in this assessment along with points of general consensus.
BORDER XXI MISSION:
"To achieve a clean environment, protect public health and natu-
ral resources, and encourage sustainable development along the
U.S.-Mexico Border."
BORDER XXI GOAL:
• Promote Sustainable Development
BORDER XXI STRATEGIES:
1. Ensure Public Involvement
2. Build Capacity and Decentralize Environmental Management
3. Ensure Interagency Cooperation
11. Border XXI Background
The United States and Mexico signed die "La Paz Agreement" in
1983. The agreement focused on promoting cooperative efforts to
address environmental issues along the U.S.-Mexico border. It
defines the "border area" as die region situated 100 kilometers on
either side of the international boundary. The agreement also estab-
lishes that the U.S. and Mexico will "cooperate in the field of environ-
mental protection in the border area, on the basis of equality, reciprocity
and mutual benefit."
The Border XXI Program (Border XXI or Program) is a bination-
al plan to address the environmental issues along the length of the
U.S.-Mexico Border. The U.S. and Mexico adopted die Border XXI
Program with the release of the "Border XXI Framework Document"
dated October 1996. The Program is die most recent in a series of
1 The GNEB thanks its drafting subcommittee for its work on this document: Irasema Coronado, Placido dos Santos, Judith Espinosa and
Mark Spalding. We acknowledge that some of the text is borrowed from Spalding, Mark, "Governance Issues under the Environmental
Side Agreements to NAFTA" chapter for Economic Integration and the Border Environment to be published by the Regents of the
University of California (forthcoming in 2000).
FbinthRepflrtoflheWNeigliliorBimoimentalBoaid
26
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steps designed to promote binational cooperation on environmental
issues along the U.S.-Mexico border. Border XXI was created pur-
suant to the La Paz Agreement and builds upon its workgroup struc-
ture. The Program is the follow-on to the Integrated Border
Environmental Plan (IBEP) which spanned 1992-1994.
The EPA serves as the lead U.S. agency for the Border XXI
Program. EPA's equivalent in Mexico is the Secretariat for
Environment, Natural Resources and Fisheries (SEMARNAP). A
host of odier U.S. entities are identified in the Framework
Document as agencies involved in the Border XXI Program but they
seem to have fulfilled lesser roles in the program's actual implementa-
tion. These include, but are not limited to, the U.S. Departments of
State and Agriculture and the Presidents Council on Environmental
Quality (Border XXI Framework Document, Appendix 3). The
U.S. Department of Interior serves as the lead federal agency for the
program's natural resources activities and the Department of Health
and Human Services co-leads environmental health activities with
EPA,
The following nine binational working groups are recognized
under Border XXI:
Air
Water
Hazardous and Solid \Cfeste
Contingency Planning and Emergency Response
Pollution Prevention
Cooperative Enforcement and Compliance
Natural Resources*
Environmental Health*
Environmental Information Resources*
* The first six of these workgroups were initially authorized in the La
Paz Agreement. Those denoted with an asterisk were created under
Border XXI.
111. CNEB Perspectives
The Border XXI Program has been the subject of some contro-
versy as a result of misunderstandings and a desire to search for pre-
cise definitions, which are sometimes elusive. Even the very nature of
the program has been misunderstood by many. Several of the pro-
gram's ambiguities are identified and explored throughout this
assessment. The Board takes this opportunity to present its collective
view of the Border XXI Program in order to establish the context for
this evaluation.
The Border XXI Program is a coordination mechanism between
the U.S. and Mexico. The Program does not establish new regulato-
ry authorities for any of the involved agencies. It is not really part of
the NAFTA package that included the creation of the Border
Environment Cooperation Commission (BECC) and the North
American Development Bank (NADBank). However, because
Border XXI came after the NAFTA package was finalized and the
NAFTA environmental institutions were starting, the effort was
influenced by sustainable development theory and is an evolution
and refinement of previous binational efforts to address environ-
mental and natural resources issues between the U.S. and Mexico.
The Border XXI Program is an innovative binational effort which
brings together the diverse U.S. and Mexican federal entities respon-
sible for the shared border environment. It is intended to promote
cooperative efforts toward sustainable development through protec-
tion of human health and the environment, and proper manage-
ment of natural resources in both countries.
Although numerous environmental, environmental health, and
natural resources projects are undertaken along the length of the bor-
der, there is no clear litmus test to help define what falls under the
Border XXI coordination umbrella. Consequently, it is sometimes
unclear if the efforts of the NAFTA environmental institutions such
as the Commission for Environmental Cooperation (CEC), Border
Environment Cooperation Commission (BECC), and North
American Development Bank (NADBank), or other border focused
institutions such as the Southwest Center for Environmental
Research and Policy (SCERP) and the U.S.-Mexico Foundation for
Science (FUMEC), fit under the Border XXI umbrella and, as such,
are part of the Program. Even the GNEB itself is identified as a com-
ponent of Border XXI in the 1996 Framework Document (page 1.9),
yet the Boards precise function as a part of Border XXI has been
ambiguous at best until now.
The Border XXI Framework Document indicates that the
GNEB fulfills a role for the development of the Border XXI Annual
Implementation Plans (page 1.8), but the Board has never been for-
mally asked to provide input on these during their development,
even though plans have been developed for the years 1996-1998.
This evaluation was the first formal request for input by the Board
since it commented on the original Border XXI Framework and
-------
workplans. We also note that a 1999 Implementation Plan has not
been developed even though the year was practically over at time of
•writing (December 1999). This said, the Board acknowledges that
the Border XXI Program always was something it could and did
make recommendations about in its annual reports to the President
and Congress.
The Board members see great potential from continued collabo-
ration with Mexico's similar advisory body called the Consejo
Consultivo para el Desarollo Sustentable de Region 1 (the Consejo).
However, many members of the GNEB were unaware that the pur-
pose of their annual meeting widi the Consejo is established in the
Framework Document. The document states that "At least once a
year, t/x rtvo advisory boards will convene a joint meeting to evaluate the
progress of the Program" (Framework Document, page H2). Some of
this ambiguity may be attributed to the fact that the Boards mem-
bership changed significandy during 1999. The experience points to
opportunities and the great need for continual coordination efforts
among Border XXI participants and observers. EPA!s request for
GNEB input on this Border XXI Report is a very positive step
because diis role was also envisioned and expressly stated in the
Border XXI Framework Document (page 1.8) and we concur that
this role is appropriate.
Ambiguity among the Border XXI participants has contributed
to suspicion and doubt among some members of the public and rep-
resentatives of some local governments. Public outreach efforts are
vital to counter erroneous interpretations of the Programs objectives
and strategies even if some definitional ambiguities persist. At its
core, the Border XXI Program seems to implement pollution control
and pollution prevention to protect public health and the environ-
ment in the transboundary setting of the U.S.-Mexico border.
Natural resources efforts are also currently a component of the
Border XXI Program. Such natural resources efforts pre-date Border
XXI and, to a large extent, are independent of the Program's core
pollution control and pollution prevention functions, water supply
management notwithstanding.
An alternative perspective advanced by some members of the
EPA describes the Border XXI Program as a water infrastructure and
conservation/environmental health program. This latter interpreta-
tion would include natural resources as an integral part of the pro-
gram but it is undear how cooperative enforcement, one of the nine
workgroups, would fit well into this structure. Anodier perspective
holds thac natural resources were incorporated into Border XXI
because public input reflected a desire for that inclusion. The fact
that there is disagreement about the programs core components
reinforces the sense of ambiguity of what the program entails, partic-
ularly since the programs stated goal is to promote sustainable devel-
opment.
Environmental health is more direcdy linked to the other pollu-
tion-related aspects of the Border XXI Program because the activities
can directly or indirecdy reduce human health exposures. For this
reason, the Environmental Health "Workgroup has asked to work
closely with others such as the Air Workgroup.
Regardless of where they originate, border environmental prob-
lems significandy impact communities and ecosystems on bodi sides
of the border. Border XXI respects the sovereign rights of the U.S.
and Mexico to manage their own resources according to their own
policies, and seeks to ensure that such activities do not damage the
environment of the neighboring country.
IV. Progress on the Border
XXI Strategies
a. Ensure Public Involvement
To date the Border XXI workgroups have included federal gov-
ernment and state government representatives. Formalizing places at
the table for state and tribal governments has recendy augmented
them. This still omits civil society (especially environmental NGOs)
and the private sector. With regard to the last group, we are con-
cerned that EPA and SEMARNAP have done little to effectively
integrate border private sector, including but not limited to, indus-
trial entities.
Implementation of public outreach is a relatively new activity for
some of the parties involved in Border XXI. It has been performed
widi varying degrees of success and effectiveness all along the U.S.-
Mexico border. The federal governments' incorporation of public
input opportunities within die Border XXI workgroups, subgroups
and the high-profile annual National Coordinators Meetings, is a
significant step forward. The workgroup, subworkgroup, and
National Coordinators' Meetings are appropriate vehicles for incor-
porating public input into the program. However, it is disappointing
to see some workgroup meetings minimally advertised, intentionally
excluding the public, hastily organized to be conducted in cities far
beyond the border region where the public cannot reasonably
attend, or even not meetingat all except at the annual National
It should be noted that the GNEB and Consejo do not precisely match each other as they have different geographic focuses and
membership.
FwutliReiHiriofllieGMdNeigliliorMoDDienlal Board
28
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Coordinators' Meeting. In a general sense, both federal governments
should be congratulated for the progress that has been made since
the beginning of the Border XXI Program. However, full transparen-
cy has not been achieved and is necessary to truly incorporate the
public in this program.
The establishment of EPA!s Border Offices in San Diego, El Paso,
and Brownsville are helping considerably with outreach needs.
However, outreach efforts should be developed and implemented in
close coordination with tribal, state and local governments, as well as
civil society organizations, which usually have stronger links to the
residents of border communities. The offices have taken a positive
approach by establishing their own "workshops" or "open house
meetings" but more should be held in border communities outside
die offices' home bases. Greater effort should also be made to identi-
fy and use locally available fora ranging from Municipal
Environmental Committee meetings to local Rotary Club meetings.
The EPA should consider preparing a concise annual public out-
reach plan that would describe the Border XXI outreach events envi-
sioned for the forthcoming year in the U.S.
EPA should also recognize and use the great value of the local
media for delivering its border environmental messages.
Newspapers, television, and radio are underutilized but are poten-
tially key allies in the efforts to change behaviors and increase public
awareness about environmental issues. The successful pursuit of
media coverage often requires personal effort and interaction at the
local level. The mere generation of press releases or media advisories
is often insufficient to draw out positive media coverage.
Consequently, close interaction with state and community represen-
tatives is necessary bring attention to the real world issues and to the
progress that is being made. Although this must be executed careful-
ly and in conjunction with local officials, the EPA outreach offices
should develop and implement media outreach plans for U.S. bor-
der communities. Outreach efforts should also continue to be
undertaken with bilingual, binational and class-sensitive approaches
that recognize that many border residents do not have access to
advanced communications technology such as e-mail. It should also
be noted that many residents of U.S. border communities rely heav-
ily on Mexican media for information conveyed in Spanish.
Consequently, outreach efforts should be oriented toward local con-
ditions, further emphasizing the importance of integrating local gov-
ernment representatives in the design and implementation of public
outreach efforts.
Additional focused effort should be made along the length of the
U.S.-Mexico border to seek public comment and provide the public
with information regarding plans and progress. EPA made efforts to
integrate state and local government, as well as some civil society
input during development of the Border XXI Framework
Document. However, genuine public outreach has been virtually
nonexistent in the development of the Annual Border XXI
Implementation Plans. Because these are essentially the blueprints
for the projects and activities to be performed during two-year peri-
ods, public input opportunities should be organized throughout the
border region to provide residents with progress reports while also
seeking suggestions for future activities. This should also reach out to
Native Americans when the necessary collaboration with tribal gov-
ernments has been performed.
The new Environmental Information Resources Workgroup
seems to have been developing well, and has the potential to make
some difference in the dissemination of environmental information.
As such this multi-media workgroup has a difficult job, but one that
is crucial to make Border XXI effective as a multi-disciplinary and
cross-media effort. In this regard, there is a need for greater inter-
connection between workgroups (i.e., Air, Health, Water, etc.).
Some of this is underway, but the new Environmental Information
Resources Workgroup and Environmental Health Workgroup can
and should play a vital role in making this a reality.
The workgroups should also do more to emphasize environmen-
tal education efforts throughout the border region. Investing in
future generations and promoting environmental education at all
levels will help border communities develop the long-term technical
skills, interest and knowledge necessary to address local problems.
EPA and SEMARNAP have agreed that Border XXI documents
be binational in nature. Consequently, they are developed with input
from both nations, ostensibly incorporating public and subnational
governmental input. Because they are subject to binational approval,
numerous logistical complexities are introduced including the devel-
opment of binationally acceptable text, working within binational
time frames, completing accurate translations, and finally approving
the reports in their entirety. These binational complexities tend to
bog down report production and create a great deal of work for the
agency staff. As an unfortunate consequence, public outreach is
often ignored or is shifted to a lower priority in the world of dead-
lines that are dictated from the central governments of each nation.
Nevertheless, as one of the three fundamental strategies of the
3 For some GNEB members, this concern has been around for some time, and has been the subject of considerable remediation effort. In
particular some view the activity by EPA to reach a broad cross section of the stakeholder/public as extensive and think that at the tech-
nical level there is strong participation by NGOs and other knowledgeable sources.
29
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Border XXI Program, both federal governments must do more to
fully incorporate their public in the development of these reports.
The Border XXI Program has been described as having ulterior
motives such as surrendering national sovereignty of the border
region to the United Nations, or pursuit of a "new world order."
These accusations are patently false, yet they have persisted for years
in certain circles of border communities. Their prominence in public
statements by some public figures is largely an artifact of inadequate
public outreach efforts to discredit such misrepresentations of the
Border XXI Program. Public outreach describing the environmental
issues of the border region and identifying the locally specific efforts
to address these problems is vital to counter these baseless claims. A
particularly sad result of this was the lack of full participation by all
of the border states in Border XXI until the execution of the
Coordination Principles document in mid-1999.
b. Build Capacity and Decentralize
Environmental Management
The GNEB perceives that the decentralization strategy of the
Border XXI Program is directed primarily at Mexico's governmental
operations. It is important to state this because of some perceived
ambiguities pertaining to this topic in the Border XXI Framework
document. The following paragraph clarifies the nature of the confu-
sion surrounding the decentralization theme in the Framework
Document.
Appendix 5 of the Border XXI Framework Document, entitled
"State and Municipal Decentralization and Strengthening in Mexico
in the Context of Border XXI," is a proposed federal strategy for
decentralization in Mexico. Portions of the text in this Appendix
were not written clearly enough and led to very serious misunder-
standings among governmental entities in the United States. For
example, the appendix states, "In terms of water concerns the laws of
border States are significantly outdated," It adds that, "Under Border
XXI, existing legislation will be revised to give more legal authority to
state and municipal administrators. Specifically anew legal framework
will be established for each border government entity" (Framework
Document, Appendix 5.8). Such language generated profound con-
cerns among state and local governmental representatives in the U.S.
because the text did not state with sufficient clarity and emphasis
that this was contemplated in Mexico but not in the U.S. Thus, this
language seemed to conflict with the voluntary nature of the Border
XXI Program, which was described as an effort that does not create
new regulatory authorities. The problem within the U.S. was one of
clarity, not one of intent. To avoid such problems in the future, the
EPA should provide timely opportunities for review and comment
from state and municipal environmental agencies. The drafters of
text should always recognize the great importance of emphasizing
what is intended in the binational context and what is intended for
either the U.S. or Mexico.
Through Border XXI and more generally, Mexico's federal govern-
ment has expressed a commitment to decentralize regulatory authori-
ties to the state and local levels. Progress has been incremental but the
declaration of this objective in the Border XXI Program is a very pos-
itive development in itself. Additional movement toward decentral-
ization in Mexico would help shift decision-making toward the level
of government closest to the affected communities and would lead to
greater parity with state environmental agencies in the United States.
However, sectors of the Mexican government and certain binational
institutions have resisted this objective for a variety of reasons.
Mexico's regulatory authority for environmental management is
currently and primarily centralized at the federal level. For institu-
tional reasons, Mexican federal agencies historically focused their
interaction with U.S. federal agencies and had limited interaction
with U.S. state agencies. With adoption of Border XXI, Mexican
agencies have recognized and accepted the strong authorities at the
state level in the U.S. This has led to the development of important
functional links between state environmental agencies and their
Mexican federal counterparts. For example, through the Border XXI
Enforcement Subworkgroup, Arizona, California, and Texas have
developed important operational relationships with Mexico's
Attorney General for Environmental Protection (PROFEPA), thus
permitting the U.S. states to interact on various specific issues with
transboundary implications. Similar important links have been
established widi odier Mexican federal agencies responsible for other
aspects of environmental management.
Because one of the three Border XXI strategies is "Building
Capacity and Decentralizing Environmental Management," the
Board takes this opportunity to address this key area. However,
before doing so, we again note that under its charter, the GNEB pro-
vides advice to the President and Congress on issues inside the U.S.
territory and does not presume to suggest actions that should be
undertaken by Mexico. This said, we wish to inform the President
and Congress of transboundary environmental impacts on U.S. ter-
ritory, as well as their sources and causes in order for the U.S. appro-
FouitliReportoflheGoodNeigliljcirEDyiroiimefltal Board
-------
priations process to be well informed in any decisions on grants and
odier assistance offered to neighbors.
Mexico's financial management and decision-making systems are
highly centralized, with power and resources located in Mexico City.
Such a centralized structure has profound significance for how and
when transboundary environmental issues are addressed and thus
has generated much interest and discussion between the GNEB and
the Consejo. Progress has definitely been made in Mexico during the
period of the Border XXI Program, but this has not included finan-
cial decentralization, which is vital if decentralization is to be pur-
sued in a meaningful way. Mexican states have readily accepted new
authorities with the expectation that training and funding would fol-
low but progress has been slow.
The Transboundary Environmental Impact Assessment (TEIA)
process may ultimately prove to be a casualty of the decentralization
problem. One of the NAFTA parallel agreements created the
Montreal-based Commission for Environmental Cooperation
(CEC). The CEC was charged with laying the groundwork for a tri-
lateral U.S.-Mexico-Canada agreement to provide transboundary
governmental notice whenever a proposed project has the potential
of causing a significant transboundary environmental impact to the
neighboring country. Although the CEC did an excellent job in its
fundamental planning and preparation of draft text for negotiations,
the trilateral discussions quickly became mired in the issue of envi-
ronmental permits or licenses subject to approval at subnational (i.e.,
tribal, state and local) levels. The centralized governmental structure
in Mexico seemed to be at odds with the decentralized system of
government present in the U.S. and Canada. The fundamentally dif-
ferent systems of government led to disagreements that have not yet
been resolved despite years of federal negotiations. It appears that
Canada and the U.S. may ultimately develop a bilateral TEIA agree-
ment while a similar agreement may be elusive for the U.S.-Mexico
border. In fact, the effort to adhere to a centralized notification
mechanism for TEIA to function from states to our federal govern-
ment, as proposed by some federal representatives, would merely
perpetuate the centralized system that currently exists.
The management of water supplies and water quality issues in the
Border region has also been notably centralized with the current
structure of the International Boundary and Water Commission
(IBWC), whose efforts are sometimes described as falling under the
Border XXI umbrella. Although the U.S. and Mexico Sections of the
IBWC have made some progress in attempting to incorporate stake-
holder input for its border infrastructure planning in accordance
with BECC criteria, the IBWC mechanism itself remains highly
centralized. This may be best typified by the organizations role as the
only official conduit for sharing water-related information between
parties in the two countries. The different scopes of the activities per-
formed by the IBWC and the Border XXI Water Workgroup remain
unclear after three years of the Programs existence.
However, the efforts of the BECC and the NADBank, through
their capacity-building efforts for local communities, have made a
substantial contribution toward the decentralization goals described
in the Border XXI Program. Efforts such as the NADBanks
Institutional Development Program (IDP) should be recognized and
nurtured by the two federal governments.
c. Ensure Interagency Cooperation
Numerous agencies and academic institutions are performing
environmental monitoring, research, infrastructure planning, and
pollution control planning along the border. The Border XXI
Program is an established coordination mechanism to help facilitate
and integrate these efforts with related activities such as environmen-
tal health studies. The Annual Border XXI National Coordinators
Meetings afford outstanding opportunities for interaction with our
Mexican counterparts. Nevertheless, overall coordination and com-
munication among the states and other participants in the Border
XXI Program sometimes fall short of the actual needs.
The EPA, SEMARNAP and the environmental agencies of the
four U.S. and six Mexican border states have signed a "Coordination
Principles" document for the Border XXI Program. The agreement
grew out of state concerns that they had not been adequately incor-
porated into the Program. The states' call for standard operating pro-
cedures or minimum performance standards for Border XXI
Workgroups evolved into the Coordination Principles document.
The Coordination Principles document establishes mutual expecta-
tions for interagency cooperation and the incorporation of subna-
tional participants into the Border XXI Program. It was designed so
that other state entities may also execute the document and become
officially recognized participants in the Program. The EPA has
expressed a strong interest in having Native American tribal authori-
ties formalize their participation through the Coordination
Principles document.
The development of the Coordination Principles document has
resulted in greater involvement of Mexican state environmental
-------
authorities in the Border XXI Program. After years of being exclud-
ed, the progress that is now occurring to engage them into this
process is very gratifying and, in fact, is vital to address long-term
border environmental issues.
The Coordination Principles document, which was developed by
the border states, the federal governments, and the Western
Governors' Association, is an important movement toward intera-
gency coordination. The document does not go far enough to reme-
dy the problems that can be noted in the operation of some Border
XXI workgroups. There is still a great need for minimum perform-
ance standards for each of the Border XXI workgroups. The
Coordination Principles document establishes that the workgroups
will meet at least once per year. If this is the only interaction among
workgroup participants, progress will be illusory for those work-
groups that make minimal effort to collaborate with state, local, and
tribal governments as well as the public.
The workgroups operate in vastly different ways and some meet
very infrequently. The absence of formalized operational procedures
for the workgroups has led to a counterproductive disparity among
the workgroups. Some workgroups meet only once per year and
make negligible genuine progress, while others, such as the
Hazardous and Solid 'Waste Workgroup, usually coordinate with
tribal, state, and local authorities in an exemplary fashion with fre-
quent, planned conference calls. To ensure adequate interagency
coordination, EPA and SEMARNAP should establish minimum
performance requirements for all of the workgroups and should pro-
mote the establishment of regional subworkgroups whenever affect-
ed tribal, state, and local authorities concur that subworkgroups
would be useful.
The Board also recognizes that many of the Border XXI projects
have been labeled with the misnomer of "subworkgroup." This mis-
nomer leads to the mistaken conclusion that the Border XXI
Program has many functional subworkgroups operating along the
length of the border. The terms "subworkgroup" and "project"
should not be interchangeable. Subworkgroups should be regionally
based, and have regularly scheduled meetings with agendas and
broad representation. Subworkgroups should also specifically be co-
chaired by state representatives whenever possible as described in the
BorderXXI Coordination Principles document. Recognizing criteria
such as these will help identify the legitimate subgroups working
along the border such as those formed under the Border XXI
Cooperative Enforcement and Compliance Workgroup.
EPA has stepped up its efforts to engage U.S. tribes in the Border
XXI Program. With a Border XXI Tribal Conference held in San
Diego, allocation of border infrastructure funding for tribes,
appointment of a Border XXI tribal coordinator in EPA Region 9,
and inclusion of tribal representatives in the Arizona-EPA Border
Retreat, it is clear that EPA is making a genuine effort. Tribal mem-
bers in Mexico have historically been limited to participating in
Border XXI as individuals. The addition of states and tribes has been
very positive; next we must see an opening of the Border XXI
Program to environmental NGOs and other forms of civil society, as
4
well as to private sector voices.
Besides the federal governments, several other Border XXI par-
ticipants have made some progress in their efforts to integrate state
and local governments into the Program. BECC and NADBank
have made notable strides to integrate states and local entities into
their planning activities. Although some similar environmental
infrastructure programs exist for Indian communities, tribal repre-
sentatives have made a call for enhanced access to the NADBank
and the BECC. This can and should be considered by the
Administration. Through a Joint Declaration in 1999, the Border
Governors Conference, the ten governors of die U.S. and Mexico
border states, also expressed a strong interest in nominating the state
representatives on the BECC's Board of Directors and Advisory
Board in accordance with the NAFTA side agreement that requires
state representation.
The consortium of five American universities that comprise the
Southwest Center for Environmental Research and Policy (SCERP),
along widi their seven Mexican university associates, has also
demonstrated a stronger interest in engaging the states and tribes
through their outreach and solicitation of input on their proposed
research agendas. SCERP has also sought guidance on the appropri-
ate mechanisms for more fully integrating tribes, Mexican states, and
Mexican academic institutions into their operations. The prospect of
tangible improvements in SCERP's activities is good, as long as the
consortiums management continues to work with states and tribes
to develop applied research with defined clients and practical appli-
cations. In addition, SCERP's conversion to programmatic research
rather dian individually- driven research agenda is positive. We also
have high hopes for the SCERP/BECC border needs assessment as a
vehicle to do better regional planning and prioritization of environ-
mental infrastructure projects. The Board also suggests that the
SCERP should have the primary responsibility for collecting and
4 The possibility of binational tribal involvement in the next joint meeting of the GNEB and the Consejo is a positive step toward enhanced
collaboration.
32
-------
analyzing annual environmental indicator information to assess
environmental conditions along the lengdi of the border. In cooper-
ation with their Mexican academic partners, the SCERP seems
uniquely qualified to perform this vital function along the length of
the U.S.-Mexico border.
The U.S.-Mexico Foundation for Science (FUMEC) also
receives substantial U.S. federal funding for scientific efforts along
the border. FUMEC has not made an extensive effort to integrate
tribal, state, or local governments into planning or implementation
of their efforts. Also omitted have been civil society and private sec-
tor interest groups. Private sector participation is particularly critical
because of the need for their involvement in designing and imple-
menting industrial pre-treatment programs that the FUMEC has
attempted to support for border communities. Because it has
focused on water issues, some of the FUMEC's shortcomings may
be partly attributable to the Border XXI "Water Workgroup, which
has been the subject of widespread criticism and whose scope is ill
defined with regard to the IBWC activities.
The Commission for Environmental Cooperation (CEC) is a tri-
lateral organization among the U.S., Canada, and Mexico but some
of its activities have been linked to die Border XXI Program
(Framework Document, pages 1.9, and II.3, item 7). The CEC
learned a great deal about the importance of integrating the local
perspectives, both governmental and citizen views, as a result of
some serious controversy related to its Article 13 study of the global-
ly-important San Pedro River that straddles the Arizona-Sonora bor-
der. The CEC has made substantial progress on interagency
cooperation as a Border XXI participant (Framework Document,
page 1.9). The CEC's broader mission involving the entire North
American Continent, coupled with its Canadian-based headquar-
ters, presents it with challenges for interagency cooperation on the
border yet it approaches these issues very capably with its multina-
tional staff.
V. Progress Toward the Border
XXI Mission and Coal
The principal goal of Border XXI is "to promote sustainable
development in the border region by seeking a balance among social
and economic factors and the protection of the environment in bor-
der communities and natural areas" (Framework Document, page
I.I). A precise reading of the Border XXI Framework Document
clarifies that the Programs goal is to promote sustainable develop-
ment without having a parallel aspiration to achieve it.
Consequendy, the EPAs Border XXI Program efforts to promote
sustainable development through events such as the 1998 Border
Institute held in Rio Rico, Arizona, and the 1999 Sustainable
Development Workshop held in Brownsville, Texas, and the various
other activities that are consistent with sustainable development,
could be identified as evidence of the program's success. However,
promoting sustainable development without an aspiration to achieve
it seems to trivialize the massive binational coordination effort that is
underway and directed toward sustainable development.
Some perceive a glaring disconnect between the Border XXI
Program's sustainable development goal and the activities performed
under the Border XXI umbrella. The Programs scope and composi-
tion are inadequate to genuinely move the border region toward sus-
tainable development.
If the Program's only measure of effectiveness were the border
region's progress toward sustainable development, the Program
might be considered a failure. However this would ignore the impor-
tant progress that has been made toward pollution control and pol-
lution prevention between die U.S. and Mexico. It would also ignore
the strong impact that North American socioeconomic factors play
in constandy driving us further from sustainable development along
the border.
Regardless of the definition that one uses, sustainable develop-
ment in the U.S.-Mexico border region is a more distant goal today
than it was in 1996 with inception of the Border XXI Program. In
the three years that the Border XXI Program has been in place, the
border region's population increased from about 11 million to 12
million people. The border region continues to grow at a remarkable
rate and projections suggest that the population may double to 24
million people by the year 2020. The growth of the border region is,
to a large extent, fueled by the economic disparity that exists on
either side of the international border that separates our two nations
as much as it unifies them.
A key element of this growth is the industrialization of Mexico's
northern border spurred by U.S. demand for inexpensive consumer
goods. Throughout the world, companies competing in the global
market have made sensible business decisions to seek out the lower
wage labor force available in developing nations. Many labor-inten-
sive industries, largely U.S., for decades have sought to minimize
shipping costs and to have ready access to facilities, including suppli-
-------
cis, by establishing operations in communities in Mexico, particular-
ly along the border. This was further facilitated by adoption of laws
for "in bond" assembly and manufacturing facilities with favorable
import/export tariff treatment and known as maquiladoras. These
maquiladoras are often matched by related company facilities in the
U.S. that house management, warehousing, distribution and other
functions. Together they are often referred to as "twin plants."
The maquikdora industry has offered new opportunities for
those in other sections of Mexico where socioeconomic problems,
including high unemployment and very low wages, are more severe.
The result has been the influx to the border communities of hun-
dreds of thousands from the interior of the country, particularly cen-
tral and southern Mexico. Because the number of migrants may
exceed the maquiladora job opportunities, some individuals remain
unemployed or underemployed in border communities.
Consequently, many individuals must supplement their incomes by
working multiple jobs or by sharing household expenses with others.
A 1999 report by Mexico's national statistics agency, INEGI,
indicates that maquiladoras employ over one million workers in
Mexico widi approximately 804,000 of those jobs located in the bor-
der region. The report also indicates that the average wages for
maquiladora workers (obreros) is about US$1.00 per hour including
benefits (i.e., about US$2,500 annually). The average hourly wage for
technical level workers is about US$2.90 including benefits (i.e.,
about US$6,700 annually).4 A1999 report7 by the U.S. Department
of Labor indicates drat the average maquikdora wage for "export pro-
cessing" was US$14.00 per day in 1998, or about US$1.56 per hour
excluding benefits such as meals and subsidized housing if available.
While maquiladora wages are considerably higher than Mexico's
minimum wage of US$3.00 per day, the maintenance of low
absolute salaries on bodi sides of the border, coupled with rapid
growdi of the region, undoubtedly contribute to the environmental
and environmental health issues that exist along the length of the
border. Some critics assert that die great physical distance between
die border communities and die twin plant facility owners (parent
companies) generates a sense of detachment for so-called "absentee-
owned corporations." While some twin plants have yet to effectively
address die issues of border communities, it should be noted that
others arc considered model corporate citizens. Regardless, twin
plant operations often minimize taxes paid to Mexico by avoiding
making dick maquiladoras profit centers. In addition, when
maquiladoras pay taxes to the centralized financial bureaucracy in
1 Institute National de Estadfstica Geograffca y Informatica (INEGI),
Exportation"
* Ibid.
' U.S. Department of Labor, 1999 - "Foreign Labor Trends in Mexico"
Mexico City, much of these taxes do not return to the border com-
munities, and are instead used to address needs elsewhere through-
out Mexico.
The tax base of U.S. and Mexican border communities is often
too small for current needs, much less for the provision of infrastruc-
ture for projected growth. The result is that border communities are
unable to generate enough in tax revenues to support the govern-
mental entities that implement and manage environmental infra-
structure systems for potable water, sewage collection, wastewater
treatment, solid waste management, and road paving projects which
are necessary to control paniculate air pollution. This socioeconom-
ic problem thus manifests itself in domestic and transboundary envi-
ronmental and health problems.
Many of the citizens of the border region are unable to afford the
basic housing that is required for a suitable standard of living. The
impoverished population in border communities, whether employed,
unemployed, or underemployed, leads to shantytowns, often referred
to as colonias. The colonias located on either side of the border, usual-
ly lack potable water systems and sewage collection systems. During
winter, the inadequate housing of the colonias often leads to burning
of wood fuel within the homes for warmth. This can lead to unsafe
conditions and has resulted in fatalities from carbon monoxide build-
up within homes. It also represents an important area-wide air pollu-
tion source. The inadequate wastewater management systems in
colonias contaminate shared rivers and groundwater.
In this terribly unsustainable scenario, heavy dependence on U.S.
grant funding is an inescapable conclusion if the needs are to be
addressed to protect the residents of U.S. border communities. Many
contend that U.S. grant funding is the appropriate monetary source
to address border environmental issues because the economic benefits
are realized by consumers throughout the United States whenever
they purchase products that were assembled or manufactured in die
border region. However, long-term dependence on federal grant
funding may place the border environment at risk if such federal
funding continues to be reduced, as has been the recent trend.
Although the NADBank has made notable strides to move bor-
der communities toward financially sustainable solutions, the bank
projects diat one billion dollars in new grant funding will be neces-
sary over the next ten years (NADBank's U.S.-Mexico Border Ten-
Year Outlook, Summer 1999). The absence of this grant funding will
make the NADBank's loans unaffbrdable to border communities in
both countries. The Board notes that the Congress reduced EPA's
Feb 1999 - "Estadisticas Economicas, Industrie Maquiladora de
34
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FY-2000 appropriation for border infrastructure needs from $100
million to $50 million. This significant reduction in EPA's appropri-
ations for border water and wastewater infrastructure projects will
impede the construction of necessary projects and is a major setback
for poor communities along the length of the border.
A long-term strategy is necessary to address the root cause of the
unsustainable nature of the border region's growth. The U.S. govern-
ment should engage the Mexican government and the private sector
in pursuit of new economic mechanisms that will address environ-
mental and humanitarian needs without eternal dependence on larg-
er and larger federal grants. The pursuit of low-cost housing for every
employee of U.S.-owned companies should be an integral part of
these governmental discussions with the private sector. Optimally,
appropriate economic compensation should be pursued for twin
plant workers to ensure that they are able to acquire adequate hous-
ing while addressing the appurtenant infrastructure needs.
Because the NAFTA is the first trade liberalization agreement
that contains provisions to deal with the environmental issues that
arise in die context of trade relations and disputes, and because the
NAFTA package includes two environmental side agreements, the
NAFTA's ultimate success depends on the development and imple-
mentation of a long-term economic strategy for the environmental
well-being of the U.S.-Mexico border region. This is a binational
problem that will require innovative public and private sector coop-
eration to resolve.
VI. Other Border XXI Issues
As noted above, binational cooperation on natural resources
issues predates the Border XXI Program. When Border XXI was
developed, Natural Resources was one of three new workgroups cre-
ated by the federal governments without consulting the states or
local governments. The inclusion of a Natural Resources "Work-
group in the Border XXI Program has created apprehension and
some confusion while producing minimal benefit for those that have
been working together on binational natural resources issues for
many years without the Border XXI umbrella.
Widespread public apprehension about die natural resources
component of Border XXI can be traced back to the powers of the
Endangered Species Act (ESA) and the actions of federal land man-
agement and wildlife management agencies in the western U.S.
This became particularly alarming to some when ESAs powers were
viewed in the context of the U.S.-Mexico border region. Many won-
dered what the outcome or actions might be. The ESA does have
implications for private property rights in the United States includ-
ing land management and water management. The inclusion of
Natural Resources into the Border XXI Program introduced volatili-
ty that, in some circles, painted over the Border XXI Program as a
whole. Many environmental agency representatives in the U.S. were
concerned that ESA-related actions that happened to occur within
the defined 100-kilometer border region would somehow be mis-
construed as Border XXI "actions" and thus generate an uproar
about the Program as a whole.
State natural resources agencies have not readily embraced the
Border XXI Program, choosing instead to handle their binational
pursuits through other pre-existing fora. We have also noted that the
Border XXI Program, as a coordination mechanism, has had very lit-
tle benefit for Department of Interiors pursuits on natural resources
issues in general. Meanwhile, the Department of Interior has been
very successful with its Mexican counterpart (SEMARNAP) with-
out having to wave the Border XXI flag.
It is apparent that the Natural Resources Workgroup is not a
good fit in the Border XXI Program, which is essentially a pollution
control and pollution prevention effort. Some members of the pub-
lic made a call for inclusion of natural resources issues during the
polilic comment period for the Border XXI Framework Document
but it is now clear that other members of the public believe it should
be excluded. The GNEB recognizes Mexico's more holistic view of
the environment which has integrated natural resources with other
environmental quality responsibilities under a single federal institu-
tion called the SEMARNAP. However, the fundamentally different
regulatory scheme in the U.S., as well as its sensitive political impli-
cations, should be evaluated as important considerations for the
Programs current structure, and for the future content of a successor
program after 2001.
While some of the Annexes to the La Paz Agreement address air
issues, the GNEB also notes the absence of a binational institution
charged with providing financial assistance to address air quality issues.
As the results of binational air quality studies emerge, it is becoming
clear that area sources, such as unpaved roads and the lack of adequate
public transportation, present important health risks for border resi-
dents. Although road paving projects are undertaken with state and
federal assistance, U.S. and Mexican communities suffer from the
same funding issues described earlier in this paper for water and waste-
8 We note that some of us view the ESA as lacking in adequate power to really accomplish its mandate, while many feel its powers are too
strong.
-------
water infrastructure. The two federal governments should evaluate
possible financial mechanisms to assist with transboundary air pollu-
tion problems ranging from burning landfills to unpaved roads.
The Border XXI Program itself seems to be minimally funded,
but the Program's existence has elevated awareness of the need for
additional binational environmental infrastructure funding. Even so,
Congressional appropriations have decreased for environmental pro-
grams as a. whole and for border environmental programs in particu-
lar. This trend is very disconcerting because the border regions needs
arc not being addressed due to funding shortfalls.
A second aspect of the funding issues relates direcdy to EPAs
internal allocation of border funding. The bulk of the border-related
funding apparently comes from other EPA programs such as Water
and \5fcstewater Management but there is no firm, process for the
allocation of these funds to border needs. In addition it appears that
there is no line item in EPAs budget stricdy for funding border pro-
grams, with the possible exception of water and wastewater infra-
structure funding. The functional link between the Border XXI
Program's initiatives and funding distribution is not clear at this
time. EPA should develop a strategic link between activities per-
formed under the Border XXI Program, and the funding that is nec-
essary to carry out those activities over the course of the Program.
This is a very difficult issue due to the annual nature of budget
appropriations. Nevertheless, budget appropriations should be irM-
ated and pursued with as much commitment, vigor and interagency
cooperation as is needed for the project activities themselves. It can
also eliminate some ambiguity about the Border XXI Program,
because it might pave the way for the development of a more precise
definition to identify Border XXI projects. An EPA line item for bor-
der funding could establish a litmus test for defining a Border XXI
project or activity. Such a line item should also establish that broad
binational coordination needs, which are fundamental to the success
of the Program, require firm and consistent financial support.
We note that the BECC's operational budget may barely suffice
for the water and wastewater infrastructure efforts that it pursues
but, assuming additional resources are identified, the institution's
mandate should eventually be expanded to address the need for
additional hazardous waste management facilities (Treatment,
Storage, and Disposal or "TSDs"). The critical shortage of such facil-
ities, particularly in Mexico, raises serious concerns about the ulti-
mate disposition of hazardous wastes in the border region. TSDs are
private sector business endeavors, but the BECC could pky a very
useful role in promoting and certifying the establishment of such
facilities in Mexico.
Also pertaining to hazardous wastes, binational efforts are still
needed to ensure the completeness, accuracy and compatibility of the
U.S. HAZTRAKS and Mexico's SIRREP hazardous waste tracking
mechanisms, which are supposed to address transport in die trans-
boundary setting. The adequacy and compatibility of these two data-
bases is necessary to ensure that hazardous waste generators are
properly managing their materials in accordance with applicable laws.
VH.Coitclusion
As a five-year plan, Border XXI looks beyond single
Congressional appropriation cycles, but Ms short of taking the
long-term view. It is notably attempting to put in place the use of
long-term indicators of human and ecosystem health. It is still
heavily focused on federal interaction and has not fully succeeded in
building local capacity or in thoroughly fostering public support. It
has, however, made the work of the La Paz workgroups more
accountable to the public through their individual transparency or
failure to work transparently.
Because Border XXI is a continuation of the Integrated Border
Environmental Plan (IBEP) and is the result of the La Paz
Agreement which was signed by the President of each country in
1983, it is likely that Border XXI or a similar successor will continue
to serve as a coordinating mechanism for the two countries. As
Border XXI continues to emphasize transparency to the public as
well as to tribal, state, and local governments, there will be more par-
ticipation by those governments and from NGOs and the private
sector in the workgroup and subworkgroup process. Most likely this
will also mean a lengthier decision-making process. As decentraliza-
tion continues to result in greater decision-making capability by state
and local governments, particularly in Mexico, there will be more
state-to-state collaboration on local regional projects. One can
already see collaboration among the four U.S. and six Mexican bor-
der states through the Ten State Alliance that ironically gelled out of
concerns about being excluded from the Border XXI Program. The
federal governments will probably play a different role in this deci-
sion-making paradigm.
The improved communications and dialogue that exists between
state and federal environmental officials in the U.S. and Mexico is an
important benefit of the Border XXI Program. A variety of bination-
' The development of a follow-up Border XXI indicators report is greatly desired by some border community representatives. This would
be especially useful to achieve coordination with the OECD process.
FourtlEepoiloftlieWNdfllilHirBitomenlalBoaid 36
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al projects have been implemented which might otherwise not have
been possible without the Border XXI Program or some other bina-
tional coordination mechanism. "We must ensure that the communi-
cations avenues that lead to such projects continue to be available
because they are die underlying basis for cooperative binational
efforts to mitigate environmental issues. As with any massive coordi-
nation effort, the Border XXI Program does have room for improve-
ment. This will always be the case.
The GNEB hopes to see more rapid decentralization and greater
local empowerment as the Border XXI Program continues to
mature. This delegation of authority and the need for more local
implementation should be accompanied by a commensurate distri-
bution of funding to support the tribal, state and local involvement
which is vital to the success of the Program.
In the broader context of trade, environment, and quality of life,
the ultimate success of the NAFTA, is heavily dependent upon the
involved parties' ability to mitigate and, whenever possible, remedy
the challenging environmental issues of the rapidly-growing border
region. The importance of resolving these environmental issues in a
binationally cooperative manner cannot be overstated. The Border
XXI Program is the only existing coordination mechanism to this
end. Consequendy, GNEB supports the Program and we encourage
the federal governments to perpetuate these binational efforts
beyond 2001. Such efforts must be accompanied by commensurate
funding from both federal governments.
E Daily Ufifor some border region residents includes drawing water from storage containers became they remain
W;jthconnected to the local water supply system. Source: Photo was taken by Diana CediUo, age 10, as apartici-
i"pant in the photo project, "The U.S.-Mexico Border Through the Eyes of Children, "coordinated by the
•^Border Health Foundation and the Border Vision Frontertza Project of the UA Rural Health Office.
-------
-------
Tne BinaftionaJ Dimension
n f\ the only U.S. government federal advisory body focused on
JTlkJ environmental sustainability of die U.S.-Mexico border
region, the Good Neighbor Environmental Board realizes diat.bodi
domestic and binational approaches are needed in order to efFective-
ly achieve its mission. It is imperative that die Board'have an up-to-
date and in-depdi understanding of how Mexican environmental
policy, infrastructure and issues affect U.S. natural resources and bor-
der communities. For diat reason, a subset of members serves as the
Coordination with Mexico Workgroup in order to exchange infor-
mation and perspectives widi Mexican public and private agencies.
The purpose of this liaison role is to maximize die two-way ,
exchange of information between the two countries. The first objec- -
tive is to remain informed about developments in Mexican environ-
mental policy, and incorporate this information in the formulation
of recommendations to Congress and the President. To complement
this incoming flow of information, die Board reaches out to main-
tain an active network widi Mexican governmental and npn-goverri-.
mental organizations so that its recommendations to the U.S.
President and Congress may also be communicated effectively to
numerous organizations in Mexico. The ultimate objective of diis
two-way communication is to identify die top transboundary envi-
ronmental sustainability priorities for the U.S. President and
CorigresSi and to recommend more effective approaches for improv-
ing the border environment.
In 1997, Good Neighbor began to actively engage in dialogue
with representatives from a counterpart Mexican structure, the
Region.! National Advisory Council for Sustainable Development
(Consejo). The Consejo is charged with advising die Mexican
Ministry of die Environment, Natural Resources and Fisheries
(SEMARNAP) oil issues including border environmental conditions.
The Region I portion of Consejo includes a number of Mexican bor-
der and northern states. Since 1997) Good Neighbor and Consejo
Region 1 have held two joint meetings specifically focused on identi-
fying common goals and discussing collaborative methods for reach-
ing them. In addition, on a more ad-hoc basis, representatives of die
two advisory groups have been attending each others events. Both
groups continue to report back on developments and incorporate this
knowledge into their; respective reports.
Based on this valuable experience, Good Neighbor is taking steps
to seek out and actively listen to additional groups in Mexico from
both the governmental and non-governmental sectors. The Board is
committed to an open and robust dialogue with Mexican civil society,
as well as die public sector, so diat its recommendations contihue to
be informed by die insights it gains from these interactions.
39-;
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APPENDKA
GOOD NEIGHBOR ENVIRONMENTAL BOARD 1999 & 2000
ROSTER FOR FOURTH REPORT TO THE PRESIDENT AND CONGRESS
Judith M. Espinosa, Chair
Director, ATR Institute
1001 University Blvd. Suite 103
Albuquerque, NM 87106
505-246-6410; 505-246-6001 fax
email: jmcspino@unm.edu
Marc Sixkiller Ayuvoo
Environmental Manager
Pala Band of Mission Indians
P.O. Box 50
Pala, CA 92059
760-742-3174; 760-742-3189 fax
email: pepac@palatribe.net
Pat Banegas
General Manager, "Water and Sanitation District
P.O. Box 1751
1470 N. 4th Street,
Anthony, NM 88021
505-882-3922; 505-882-3925 fax
email: awsdl@whc.net
Diana Borja
Director, Border Affairs (MC 121)
Texas Natural Resources Conservation Commission
P.O. Box 13087
Austin, TX 78711-3077
512-239-3603; 512-239-3515 fax
email: dborja@tnrcc.state.tx.us
Karen M. Chapman
Texas Center for Policy Studies
44 East Avenue Suite 306
Austin, TX 78701
(512) 474-0811; (512) 474-7846 fax
email: kc@texascenter.org
Irasema Coronado, Ph.D.
Department of Political Science
University ofTexas- El Paso
El Paso, Texas 79968
Phone: 915-747-7980 (office)
915.747.5227 (department); 915-747-5400 fax
email: icoronado@miners.utep.edu
Placido dos Santos
Border Environmental Manager
Arizona Dept. of Environmental Quality
400 W Congress Street, Suite 521
Tucson, AZ 85701
520-628-6744; 520-770-3540 fax
email: dossantos.placido@ev.state.az.us
Jennifer L Kraus
Principal
Global Environmental Consulting Company
11502 Alborada Drive
San Diego, CA 92127
858-674-9686; 858-674-9697 fax
email:jkraus@gecco-inc.com
Susan Kunz
Director
Border Healdi Foundation
2501 E. Elm Street
Tucson, AZ 85716
520-795-9756; 520-795-1365 fax
email: skunz@ambhf.org
Bess Metcalf
U.S. Director
Rio Grande/Rio Bravo Basin Coalition
109 North Oregon, Suite 617
El Paso, TX 79901
915-532-0399
915-532-0474 fax
email: coalition@rioweb.org
Ed Ranger
Counsel, International Law
Carlsmith Ball
2303 N. 44th St. Suite 14-213
Phoenix, AZ 85008
(480) 784-6886; (603) 971-1784 fax
email:EdRanger@USA.net
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Linda Smith
Manager of Environmental Affairs
H-E-B Grocery Company
4839 Space Center Drive
San Antonio, TX 78218
210-938-5414; 210-938-5280 fax
email: smith.linda@heb.com
Mark J. Spalding
Assistant Professor
University of California-San Diego
1055 CedarcrestWay, San Diego, CA 92121-4136
858-638-0783; 858-638-0784 fax
email: mspalding@ucsd.edu
Nancy H. Sutley
California Environmental Protection Agency
555 Capitol Mall Suite 525
Sacramento, CA 95814
916-445-3846; 916-324-0908
Jorge Vargas
University of San Diego School of Law
5998 Alcala Park
San Diego, CA 92110
619-260-4816; 619-260-2218 fax
email: mexlaw@acusd.edu
FEDERAL MEMBERS
Gregg Cooke
Regional Administrator
U.S. Environmental Protection Agency
1445 Ross Avenue, Suite 1200
Dallas, TX 75202-2733
214-665-2100; 214-665-2146 fax
email: cooke.gregg@epa.gov
M.J. Fiocco
Office of Intermodalism
Room 10126 (S-3)
U.S. Department of Transportation
400 Seventh Street S.W
Washington, DC 20590
202-366-8018; 202-366-0263 fax
email: m.j.fiocco@ost.dot,gov
John Klein
Assistant Regional Hydrologist
U.S. Geological Survey
Placer Hall, Suite 2015; 6000 J Street
Sacramento, CA 95819-6129
916-278-3032; 916-278-3045 fax
email: jmldein@usgs.gov
M. Winston Martin
Special Projects Officer
U.S. Department of Housing
and Urban Development
800 Dolorosa Avenue
San Antonio, TX 78207
210-475-6806; 210-472-6804 fax
email: winston_martin@hud.gov
David E. Randolph
Coordinator for U.S.-Mexico Border Affairs
Office of Mexican Affairs (ARA-MEX)
U.S. Department of State, Room 4258 MS
2201 C Street, N.W.
Washington, DC 20520
202-647-8529; 202-647-5752 fax
email: randolphde@state.gov
Ella M. Rusinko
Deputy Assistant Secretary Congressional
Liaison for Program Research and Evaluation
U.S. Department of Commerce
Room78l4AHCHB
I4di and Constitution Avenue NW
Washington, DC 20230
202-482-2309; 202-273-4723 fax
email: erusinkol@doc.gov
Alan Stephens
State Director, Rural Development
U.S. Department of Agriculture
3003 Central Avenue, Suite 900
Phoenix, AZ 85012
602-280-8702; 602-280-8708 fax
email: alan.stephens@az.usda.gov
Rosen do Trevino III
State Conservationist
Natural Resources Conservation Service
U.S. Department of Agriculture
6200 Jefferson Street, Northeast
Albuquerque, NM 87109-3734
505-761-4401; 505-761-4463 fax
email: rtrevino@nm.nrcs.usda.gov
Richard Walling
Director, Office of the Americas
and the Middle East
Office of International and Refugee Health
U.S. Department of Health and Human Services
Room 18-74, Parkkwn Building
Rockville,MD 20857
301-443-4010; 301-443-6288 fax
email: rwalling@osophs.dhhs.gov
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BINATIONAL
Mr. John Bernal
U.S. Commissioner
International Boundary and Water Commission
4171N. Mesa, Suite C-310
El Paso, TX 79902
915-832-4101; 915-832-4191 fax
email: johnbernal@ibwcstate.gov
DESIGNATED FEDERAL OFFICERS
Elaine M. Koerner (2000)
Office of Cooperative Environmental Management
U.S. Environmental Protection Agency (1601 A)
1200 PennsylvaniaAve. N.W
Washington, DC 20004
202-564-1484; 202-501-0661/0656 fax
email: koerner.elaine@epa.gov
Melanie Medina-Metzger (1999)
Office of Cooperative Environmental Management
U.S. Environmental Protection Agency (1601A)
401 M Street S.W.
Washington, DC 20460
202-564-5987; 202-501-0661/0656 fax
Email: medina-metzger.melanie@epa.gov
ADDITIONAL RESOURCE SPECIALISTS
Rafael J. Guerrero
Strategic Planner
USDA/NRCS South Central Region
P.O. Box 6459
Ft. Worth, TX 76115-0459
817-509-3292; 817-509-3338 fax
rguerrer@ftvv.nrcs.usda.gov
William McLeese
Office of Mexican Affairs
U.S. Department of State, Room 4258 MS
2201 C St. N.W.
Washington, D.C. 20520
202-647-8529; 202-647-5752 fax
mdeesewv@state.gov
Allyson Siwik
El Paso Border Liaison Office
U.S. EPA
4150 Rio Bravo, Suite 115
El Paso, TX 79902
915-533-7273; 915-533-2327 fax
siwik.allyson@epa.gov
Darrin Swartz-Larson
El Paso Border Liaison Office
U.S. EPA
4150 Rio Bravo, Suite 115
El Paso, TX 79902
915-533-7273; 915-533-2327 fax
swartz-larson.darrin@epa.gov
M. Roberto Ybarra
International Boundary and Water Commission
4171 N. Mesa, Suite C-310
El Paso, TX 79902
915-832-4105; 915-832-4191 fax
bobybarra@ibwc.state.gov
Appendices
IWiReportoftlieWNdglilMirBiiriioiimffltalBoaid
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APPENDIX B
INTERNET INFORMATION RELEVANT TO THIS REPORT
ris a list of web sites that may contain additional information of interest to the audience for this Fourth
Report of the Good Neighbor Environmental Board to the President and Congress of the United
States. Good Neighbor has compiled this list to serve as a potential information tool in following up on the recom-
mendations contained in the report. The Board does not vouch for the accuracy of die contents of the web sites, nor
does it necessarily support the policies they may contain or endorse any products, services, or enterprises displayed on
the sites. In addition, the Board acknowledges that there may be additional sites that contain information relevant to
this report. Good Neighbor welcomes suggestions for additional sites to include in this list.
INTERNATIONAL
Bolder Environment Cooperation Commission (BECC)
www.cocef.org
Borderlines Index: Page
www.kc-online.org/borderline/
Coalition For Healthier Cities and Communities
www.healthycommunities.org/
European Foundation for die Improvement of
Living and Working Conditions
http://susdev.eurofbund.ie
International Boundary and Water Commission
www.ibwc.state.gov
North American Commission for
Environmental Cooperation
www.cec.org
North American Development Bank (NADBank)
http://www.nadbank.org
North American Agreement on Environmental Cooperation
www.epa.gov/oia/aboutna.htm
North American Trade Corridor Partnership
www.naitcp.gob.mx/
Pan American Health Organization
www.paho.org/english/hep/heq_home.htm
Sierra Madre Alliance Program Overview
www2.planeta.com/mader/planeta/0799/0799sierra.html
Sister Communities Health Profiles
www.fep.paho.org/english/SisCity.asp
Transboundary Resource Inventory Program
www.bic.state.tx.us/trip/
U.S.-Mexico Border Health Association
www.usmbha.org/
MEXICAN GOVERNMENT
Comision Nacional Del Aqua
www.cna.gob.mx
Comision Nacional para el Conocimiento
y Uso de la Biodiversidad
www.conabio.gob.mx
Consulado General de Mexico en San Diego
www.sre.gob.mx/sandiego/
Institute Nacionalde Estadistica Geopgraphia e Informatica
www.inegi.gob.rnx
Procuraduria Federal de Protection al Ambiente
www.profepa.gob.mx
Secreteria de Salud
http://cenids.ssa.gob.mx
SEMARNAP
www.semarnap.gov.mx/
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UNITED STATES
FEDERAL GOVERNMENT
dean Water Action Plan
www.cleanwater.gov
Department of the Interior- U.S.-Mexico
Held Coordinating Committee
www.doi.gov/fcc
EPA Region 6- U.S.-Mexico Border Program
wwv.epa.gov/earchlr6/6bo/6bo.htm
EPA Region 9 U.S. Mexico Border Programs
\v\vsv.epa.gov/region09/cross_pr/compendi/index.html
EPA- Sala De Lectures
www.epa.gov/espanol/
EPA^urfYour Watershed
www.epa.gov/surf?
EPA- U.S. Mexico Border Center on Air Pollution
www.epa.gov/ttn/catc/cica
Healthy People 2000 Fact Sheet
http://odphp.osophs.dhhs.gov/pubs/hp2000hp2kfact.htm
Homes and Conununities-U.S. Department of
Housing and Urban Development
www.hud.gov/
National Center for Health Statistics-Healthy People 2000
www.cd&gov/nchs/products/pubs/pubd/hp2k/review/review.htm
National Water Resources
Http://water.usgs.gov/watuse/
Scrvicio de Invcstigacion Agricola-USDA
www.are.usda.gov/is/pr/para.suscribir.htm
USDA Agricultural Research Service
www.ars.usda.gov/is/
USDA-Natural Resources Conservation Service
www.nrcs.usda.gov
U.S. Department of Commerce
www.doc.gov
U.S. Department of Health and Human Services
www.dhhs.gov/
U.S. Department of State
www.state.gov
U.S. Geological Survey-Arizona Water Resources
http://dgOdaztcn.wr.usgs.gov/
U.S. Geological Survey-California Water Resources
http://water.wr.usgs.gov/
U.S. Geological Survey-Texas
http://tx.usgs.gov
U.S. Geological Survey, Water Resources
Division-New Mexico District
wwwdnmalb.cr.usgs.gov/
U.S.-Mexico Border XXI Program
www.epa.gov/usmexicoborder/ef.htm
TRIBAL GOVERNMENT
EPA American Indian Environmental Office
www.epa.gov/indian/programs.htm
Institute for Tribal Environmental Professionals
www.cet.nau.edu/itep/
National Tribal Environmental Council
www.ntec.org/
STATE AND LOCAL
Arizona Department of Environmental Quality
www.adeq.state.az.us
Border Ecoweb
www.borderecoweb.sdsu.edu
California Environmental Protection Agency
www.calepa.ca.gov
New Mexico Environment Department
www.nmenv.state.nm.us
Search for U.S. Mayors Along the Border
www.fep.paho.org/english/usmayors.asp
Texas Natural Resource Conservation Commission
www.tnrcc.state.tx.us/
Western Governor's Association
www.westgov.org/
United States-Mexico Chamber of Commerce
www.usmcoc.org
FoitlEcportofUie&KHlNcigtilMrMoiimenialBflanl
-------
NON-GOVERNMENTAL
BorderBase
www.borderbase.org
Border Health Foundation
www.ambhf.org
Border Trade Alliance
www.thebta.org
Good Neighbor Project for Sustainable Industries
www.enviroweb.org/gnp
Hazard and Recovery Center
http://chud.tamu.edu/
National Wildlife Federation
www.nwf.org/watersheds
Purdue University-Know Tfour Watershed
www.ctic.purdue.edu/kyw/
Rio Grande/Rio Bravo Basin Coalition
www.rioweb.org/
Right to Know Network
www.rtk.net/
Southwest Center for Environmental Research and Policy
www.scerp.org
Texas Center for Policy Studies
www.texascenter.org/
University of California-San Diego
www-kps.ucsd.edu/jed/vl n 1 .html
University of San Diego
www.acusd.edu/bulletin/as/environment.html
University of New Mexico
www.unm.edu
University of Texas-El Paso
www.utep.edu/cornm3459/spring98/final/project/environrnent.htrn
'World Resources Institute
www.wri.org/watersheds/
RESOURCES
Austins Beltway Chronicle newsletter
www.austm-copelrn.rom/Newsletter.html
Border Ecoweb
www.borderecoweb.sdsu.edu
Border Environmental Health Directories
www.fep.paho.org/english/env/envdirs.asp
Border State Health Officials in the U.S. And Mexico
www.fep.paho.org/sho.asp
Border Ozone Map
www.ozonemap.org/
U.S. Directory of Embassies and Consulates
www.usembassy-mexico.gov/edkeaor.html
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