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Sniffing out Clandestine Water Pollution in the Tijuana River Valley

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Sniffing out Clandestine Water Pollution in the Tijuana River Valley NOTES Snif®ng Out Clandestine Water Pollution in the Tijuana River Valley SAMIR HALAWI* ABSTRACT The United States and Mexico are fellow riparian states along the Tijuana River at different points in socio-economic development. Mexico's geographic position as the upper riparian state with insuf®cient wastewater disposal systems has, for decades, caused environmental harm to the United States. Like many developing countries, Mexico lacks proper wastewater disposal infrastructure, which has resulted in the bypassing of wastewater into the Tijuana River. This wastewater inevitably ¯ows downstream to the United States, polluting the Tijuana River Valley, valley ecosystems, and California border cities and beaches. In a recent incident, over 230 million gallons of wastewater were bypassed into the Tijuana River, polluting U.S. cities, towns, and waterways. This incident was a massive vio- lation of the 1944 U.S.-Mexico Treaty, demonstrating Mexico's failure to notify the United States of wastewater discharges from its ailing sewer infrastructure, an intentional bypassing of wastewater into the Tijuana River, and apparently deliber- ate efforts to conceal the true extent of wastewater discharges. The incident exposed Mexico's reluctance to notify the United States of its sewer infrastructure failures, as well as its failure to coordinate with the United States to help repair this infrastructure, even though the environmental consequences of Mexico's wastewater bypassing predominantly affects the United States. This latest incident illustrates that the International Boundary and Water Commission's current binational emergency noti®cation and response systemÐ based on good faith reporting by MexicoÐdoes not work well, if at all. Minute 320, promulgated by the International Boundary and Water Commission in 2015, is the ®rst Commission agreement to address pollution in the Tijuana River Basin. This latest incident demonstrated Minute 320's failure to induce both countries to jointly implement concrete proposals to detect, report, and remedy instances of massive wastewater pollution, and to hold parties account- able for noncompliance. * Georgetown University Law Center, Taxation LL.M., 2020; Georgetown University Law Center, J. D., 2019; California State University±Northridge, B.A., 2013. 785 786 THE GEORGETOWN ENVTL. LAW REVIEW [Vol. 31:785 This Note proposes a Minute that would serve as an improved mechanism for binational monitoring and reporting of transboundary pollution in the Tijuana River. The proposed Minute addresses the glaring gap in Minute 320's capacity to implement measures to resolve the transboundary issues it set out to ®x. The proposed Minute would establish a binational water quality monitoring and no- ti®cation station along the Tijuana River that would rely on real-time water quality monitoring, analysis, and reporting to detect and report instances of wastewater spillage from Mexico. It would also hold both countries accountable for noncompliance. The bene®ts of the Minute to both States include public health noti®cation, project and initiative validation, repair tracking, promotion of binational cooperation, and access to critical water quality information. The legal strategies of sunshine, incentives, and the threat of sanctions should be used if the new Minute encounters resistance by Mexico in adoption or noncom- pliance upon adoption. TABLE OF CONTENTS Introduction ................................................. 786 I. The Incident: Water Odors and the Threat of Legal Action . 788 II. Response to the Incident by the U.S. Section of the International Boundary and Water Commission ............................ 790 III. Report of the International Boundary and Water Commission's Minute 320 Binational Water Quality Task Force....................... 793 IV. International Water and Boundary Commission Action in Response to the Minute 320 Water Quality Task Force Report . 796 V. What the U.S. Section Can Do to Meaningfully Affect Change . 798 A. How to Establish a Tijuana River Monitoring Station with the Help of NAWQA ........................................ 799 1. Where the Monitoring Station Would be Located . 800 2. Who Should Operate the Monitoring Station. 800 3. Who Should Assume the Cost of Building and Operating the Monitoring Station ............................... 802 B. Effects of a Monitoring and Reporting Station . 803 C. Substantive Bene®ts of a Monitoring and Reporting Station . 804 VI. Inadequacy of Minute 320 and Need for a New Minute to Enact the Monitoring and Reporting Station Proposal ..................... 805 VII. How to Encourage Mexico's Compliance with the Proposed Minute . 807 Conclusion .................................................. 809 INTRODUCTION The Tijuana River Watershed lies between the United States and Mexico and is one of the fastest-growing regions along the border, with over 5 million people 2019] TIJUANA RIVER VALLEY 787 living in the San Diego metropolitan area,1 and over 1.5 million people living in the Tijuana metropolitan area.2 The Tijuana River Watershed drains 1,750 square miles, three-quarters of which lies in Mexico, into the Paci®c Beach, which is pri- marily on the U.S. side of the border.3 Wastewater discharges into the Tijuana River from Mexico have been an issue since the early 20th century due to de®- cient sewer and wastewater disposal systems in Tijuana.4 Pursuant to the 1944 Treaty between the United States and Mexico for the Utilization of Waters of the Colorado and Tijuana Rivers and of the Rio Grande (ªthe 1944 Treatyº), the International Boundary and Water Commission, United States and Mexico (ªthe Water Commissionº) has taken several measures over the years to ensure equita- ble and ef®cient distribution of border waters, ¯ood control, channel stabilization, and border sanitation.5 The United States and Mexico, through the Commission, have made signi®cant progress in stemming the ¯ow of untreated wastewater into the United States through the Tijuana River. Some of the most notable accomplishments of the Water Commission have been the construction and operation of three interna- tional wastewater treatment plants on the border region to treat Mexican waste- water,6 as well as the Minute 320 Water Commission agreement to jointly identify and implement structural and non-structural measures to improve sedi- ment control, solid waste management and disposal, and water quality. Unfortunately, the Tijuana sewer system is in dire straits due to signi®cantly corroded pipes and overwhelming use by Tijuana's rapidly growing population. The sewer system is regularly subject to collapsing pipes, sewer lines, and collec- tors, leading to the bypassing of hundreds of millions of gallons of wastewater into the Tijuana River. A recent incident in early 2017 demonstrated that sewer system failures are more common than once thought. Negligent, accidental, and intentional discharges of wastewater into the Tijuana River from Mexico, in vio- lation of the 1944 Treaty, are often going unreported and undetected. Therefore, Minute 320 has failed to induce both countries to jointly implement concrete pro- posals to detect, report, and remedy instances of massive wastewater pollution, and to hold both countries accountable for noncompliance. 1. WATERSHED PRIORITIES: TIJUANA RIVER WATERSHED, BAJA CALIFORNIA & CA, https://perma.cc/ ED3B-XTQV (last visited Nov. 4, 2017). 2. Sewage History of Tijuana, SAN DIEGO MAGAZINE (Dec. 2007), https://perma.cc/DF6R-HMVB. 3. WATERSHED PRIORITIES: TIJUANA RIVER WATERSHED, BAJA CALIFORNIA & CA, supra note 1. 4. Tijuana River Valley Border Pollution: Hearing Before the Assemb. Select Comm. on International Water Treatment and Reclamation (Cal. 1984) (statement of Ladin Delaney, Executive Director of the Regional Water Quality Control Board), https://perma.cc/H6PF-QEGJ; Jeannette DeWyze, Shocking Facts and Horrifying History of Tijuana Sewage, SAN DIEGO READER (Nov. 23, 1988), https://perma.cc/U7LA-CB8K. 5. INTERNATIONAL BOUNDARY AND WATER COMMISSION, UNITED STATES AND MEXICO, UNITED STATES SECTION, STRATEGIC PLAN FY 2011 ± FY 2016 3 (2011) [hereinafter WATER COMMISSION STRATEGIC PLAN]. 6. Id. at 8. 788 THE GEORGETOWN ENVTL. LAW REVIEW [Vol. 31:785 This Note will recommend a new binding Water Commission agreement, in the form of a Minute, to establish a binational water quality monitoring and noti®- cation station along the Tijuana River. The station would rely on real-time water quality monitoring, analysis, and reporting to identify instances of wastewater spillage from Mexico and to hold both countries accountable for noncompliance. The bene®ts to both countries include public health noti®cation of hazardous water conditions, early and critical Tijuana sewer system failure detection, pro- ject and initiative validation, repair tracking, access to critical water quality infor- mation, and promotion of binational cooperation. Considering the myriad of bene®ts to both countries, the possibility that Mexico would be violating the U.S. rights to ªjoint useº through the 1944 Treaty, and the demonstrable failure of Minute 320 to address the transboundary issues, the new proposed Minute should not encounter much resistance, especially if the United States would be willing to shoulder the majority of the costs. If the new Minute does encounter resistance in adoption or noncompliance upon adoption, the legal strategies of sunshine, incen- tives, and the threat of sanctions may be necessary to induce compliance by Mexico. I. THE INCIDENT: WATER
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