I fJl-~-5r3 I 5 5 I 9 7 7 I SONORA, MEXICO I MUNICIPAL DEVELOPMENT PROJECT: DIAGNOSTIC ASSESSMENT OF I THE CITY OF AGUA PRIETA I September 1996 I I Prepared for I U.S. Agency for International Development I By Frank B. Ohnesorgen I Ramon R. Osuna I Julio Zapata I I INTERNATIONAL CITY/COUNTY MANAGEMENT ASSOCIATION Municipal Development and Management USAID Contract No. PCE-I008-Q-00-5002-00 -I USAID Project No. 940-1008 Delivery Order No.5 I I I I I TABLE OF CONTENTS I 1 INTRODUCTION 1 I 2 METHODOLOGY 2 I 3 GENERAL MUNICIPAL CHARACTERISTICS 2 4 DIAGNOSTIC ASSESSMENT AND OBSERVATIONS 2 I 4.1 Office ofthe Mayor (Presidente Municipal) and Councilmembers (Regidores) 2 4.2 The Office ofthe Municipal Secretary (Secretario Municipal) 3 4.3 The Office ofSolidarity Programs (Director de Programas de Solideridad) 4 I 4.4 The Office ofHuman Resources (Personnel) (Director de Recursos Humanos) 4 4.5 The Office ofMunicipal Controller (Contraloria Municipal) 5 4.6 The Office ofPublic Works (Directora de Obras Pilblicas) 6 I 4.7 The Office ofIntegral Family Development (Desarrollo Integral de Familias) 6 4.8 The Office ofPublic Services (Director de Servicios Pilblicos) 7 4.9 The Office ofMunicipal Treasurer (Tesorero Municipal) 7 I 4.10 The Office ofProcurator (Sindico Procurador) 8 I 5 GENERAL DIAGNOSTIC OBSERVATIONS 9 6 RECOMMENDATIONS TO THE MAYOR AND COUNCIL 10 I I I I I I I I I I I -111- ABSTRACT I The Sonora, Mexico Municipal Development Project (SMMD) was initiated in response to the local government demand for autonomy in Mexico. Under this project the International City/County Management Association (ICMA) will provide technical assistance and training to I six municipalities in the state ofSonora, Mexico: Agua Prieta, Cananea, Nacozari, Fronteras, Naco, and Bacoachi. The purpose ofthe SMMD is to improve the capacity ofthe six municipalities in promoting and increasing citizen participation in municipal government I decision-making and processes; managing the quality oftheir urban environment; promoting sustainable economic growth by addressing managerial, environmental, economic problems that impede development; and developing stronger municipal partnerships along the U.S.-Mexico I border both through Mexican intermunicipal cooperation and U.S.-Mexico partnerships. This report describes the diagnostic assessment and the recommendations completed by the ICMA I technical assistance team in the city ofAgua Prieta. I I I I I I I I I I I I I I SONORA, MEXICO MUNICIPAL DEVELOPMENT PROJECT I 1 INTRODUCTION I The Sonora, Mexico Municipal Development Project (SMMD) was initiated in response to the local government demand for autonomy in Mexico. Under this project, the ICMA will provide technical assistance and training to six municipalities in the state ofSonora, Mexico. The I cities (and their estimated populations) are: Agua Prieta (80,000), Cananea (35,000), Nacozari (18,000), Fronteras (10,000), Naco (8,000) and Bacoachi (1,800). This report describes the diagnostic assessment and recommendations completed by the ICMA technical assistance team I in the City ofAgua Prieta. I The purpose ofthe SMMD is to improve the capacity ofthe six municipalities in promoting and increasing citizen participation in municipal government decision-making and processes; managing the quality oftheir urban environment; promoting sustainable economic growth by I addressing managerial, environmental, and economic problems that impede development; and developing stronger municipal partnerships along the U.S.-Mexico border both through Mexican intermunicipal cooperation and U.S.-Mexico partnerships. This report describes the diagnostic I assessment and the recommendations completed by the ICMA technical assistance team in the city ofAgua Prieta. I This project has the potential for providing several models that can be replicated by the rest of the municipalities in the scope ofthis project, and throughout Mexico. The technical assistance team is contributing knowledge of"best practices" in municipal management and in the sharing I ofresources. The team will provide SMMD municipalities with models for technical manuals, . which can be adapted to the local situation. There are models for local and regional cooperation I among U.S. local governments on solving common problems and issues through resource shar­ ing. These models could be used among Mexico's municipalities to address regional problems. These models have special potential for Mexico's municipalities that share regional issues with I U.S. municipalities along the border with the states ofCalifornia, Arizona, New Mexico and Texas. There are also citizen imd employee participation models that can be used to institutional­ I ize participation ofdifferent people in the decision-making process. Phase I ofthe SMMD is the technical assistance component. This phase involves conducting a diagnostic ofeach ofthe municipalities. The diagnostic will involve all aspects ofthe municipali­ I ties' operations, including urban environmental problems ofwater, wastewater, solid waste collection and disposal, hazardous wastes, and air pollution. In addition, municipal management practices, finance, budget, citizen participation and strategies for economic development will be I examined. Phase I seeks to improve municipal effectiveness and efficiency, identifying new sources ofrevenue for the improvement ofbasic service delivery and increased infrastructure investment. Citizen participation and influence in municipal governments' decision-making is a I key component ofPhase 1. I I I -2- I Phase II ofthe project will provide further technical assistance and training to the communi­ ties' and municipal governments' leadership in prioritizing and implementing the project's I findings and recommendations. I 2 METHODOLOGY The technical assistance team conducted an orientation meeting with Agua Prieta's Mayor, Councilmembers and other key personnel to review the project's objectives and the scope ofthe I diagnostic assessment. Attendees were also asked for their perspectives on the problems facing their community and government and the objectives they sought to accomplish. I Pertinent municipal documents, such as ordinances, codes, regulations, development plans, organizational charts and budget information were reviewed. The technical assistance team also conducted individual and group interviews with each ofthe officials and department managers. I Their perceptions ofthe community's, the government's, and their department's problems and objectives were solicited. These meetings were held in the officials' offices and, when appropri­ I ate, a walk-through oftheir work areas was conducted. Observational ofsome field operations sites visits were also conducted. I 3 GENERAL MUNICIPAL CHARACTERISTICS The City ofAgua Prieta has a population of80,000 (est.). It is located on the U.S.-Mexico I border directly across from the City ofDouglas, Arizona. Agua Prieta's economy is primarily based on "maquiladora" industries, tourism and light commercial and export. I The city is governed by a mayor and nine councilmembers. The municipality employs 490 employees in 11 departments or functional offices that provide a range ofpolicy, administrative, I operational and human welfare services. I 4 DIAGNOSTIC ASSESSMENT AND OBSERVATIONS The section describes the roles ofthe municipal offices and departments and the general I problems identified. 4.1 Office ofthe Mayor (Presidente Municipal) and Councilmembers (Regidores) I This office is responsible for setting municipal policy, establishing organizational objectives and appointed administrative staff. The major problems and concerns ofthe Mayor and Council I members are as follows. • The major concern is the current economic "crisis" in Mexico and its effect on municipalities' ability to finance their objectives, programs, and services. Federal revenue-sharing is distrib­ I uted through the State ofSonora (seated in Hermosillo) to seventy (70) municipalities. Federal I I I -3- I and local revenue sources are insufficient to provide basic services and fund capital improve­ ment projects. I • The traditional electoral process and administrative terms ofoffice (three years) are not con­ ducive to organizational development, delivery ofan acceptable level ofbasic services, devel­ opment ofcapital improvement projects, and the development and continuity ofa corps of I competent, professional municipal managers and employees. Policy-makers have a genuine desire to improve their citizen's quality oflife to develop the professionalism and competence ofmunicipal management and service delivery. Discussions ofhow to achieve these objec­ I tives are tempered by questions about how they will be financed. • There is no formal citizen participation process. Citizens are typically invited to public forums and meetings to inform them ofdecisions that have already been made. There is no transpar­ I ency in government policy setting, decision-making, operations, financing, budgeting, or public documents. The citizens are disenfranchised and have no interest or stake in their I community and government. I 4.2 The Office ofthe Municipal Secretary (Secretario Municipal) The Municipal Secretary is responsible for a variety ofpolitical, administrative, and public relations activities. He is the official keeper ofmunicipal legislative and policy documents. He I takes minutes and records all policy decisions, acts, accords, certifications, and other documents. He is the administrative assistant to the Mayor: the