Rio Grande Institute

Draft 7-17-10

 Memorandum

To: Rio Grande Institute

From: Tyrus Fain, Senior Advisor, The Rio Grande Institute

July 17, 2010

Status of  the Transboundary Risk Identification and Mitigation System (TRIMS) Project

Antecedents: Threats to lives and property posed by hurricane Alex bring to mind a report the  Rio Grande Institute  provided  FEMA in 1999 and RGI’s  Cover the Border Hazard Mitigation Plan (“CTB”) adopted by the state and FEMA in 2009.  Both identified a complex array of unaddressed transboundary hazards posing grave risks to lives and property on both sides of the border; CTB proposed eleven specific mitigation actions. Although the transboundary  risks pose potentials of a catastrophe on the scale of  Katrina or Bhopal  no mitigation recommendations have been implemented. This memo deals with that astounding failure.

Sixty-six (66) border area cities and counties participated in CTB thanks to FEMA Hazard Mitigations Grants from the Texas Governor’s Division of Emergency Management (“GDEM”).  Incorrectly referred to as a “Border Plan” the focus was on border  jurisdictions that had no Hazard Mitigation Plans approved or in process and therefore were not qualified to receive federal mitigation grants. The work included all of the Rio Grande Valley, upstream through Starr , Zapata and Webb  Counties, plus several “inland” counties in South Texas and the trans-Pecos. RGI was the lead consultant on CTB and the 1999 report was based upon a mitigation needs assessment it undertook under a FEMA contract.

The CTB project followed the standard FEMA/GDEM scope of work . It met all requirements and did a fine job identifying and prioritizing  hazards and mitigation actions needed to reduce risks faced by local governments. It did not, however  cover transboundary issues or an assessment of hazards or mitigation needs of Mexican sister cities. Even those Mexican cities contiguous to US border jurisdictions were outside the project’s  scope. A binational  perspective and cross-border mitigation actions were “add-ons” inspired by the shared experience of  local Lower Rio Grande officials and RGI’s report to FEMA in 1999.

 In early 2008, once the initial draft of the CTB plan had been adopted by each city council and County government and even before the state and federal review was completed RGI began work in earnest to draw attention to the seriously neglected transboundary hazards facing border residents. Proposals for several projects, even specific  legislative actions were drafted and  forwarded to the Governor’s Emergency Management Division at DPS, FEMA’s International Office, the State Department’s Office of Mexican Border Affairs and Congressman Cuellar’s staff (Cuellar chairs the Emergency Preparedness Subcommittee in the House).

Even after travel to DC and Austin to meet with key officials no action was taken on RGI’s concerns over the need for a binational plan; the CTB has been called a great success but the transboundary hazards remain outside the scope of state and federal government concern. Failure is sure to follow.

Eleven Pending Transboundary Hazard Mitigation Actions

There are eleven proposed “Binational Regional Actions” from Section 18 of the FEMA-approved  Cover the Border Plan that are pending action. Excerpts follow: 

1. TRIMS – Transboundary Risk Identification and Mitigation System “(This) initiative should become an on-going bi-nationally sanctioned program to develop and implement a series of cooperative “sister jurisdiction” hazard mitigation strategies for US and Mexican border communities whose close proximity requires extraordinary cross-border communication and cooperation to deal with their shared exposure”. …. “The end-product will be a set of well defined, mutually agreed-upon, high priority mitigation actions” …..(including) .. “technical assistance and training  (for) creating comprehensive maps from a seamless GIS-based depiction of spatial data covering the physical landscape, digital elevation models, floodplains and data layers such as transportation arteries, critical facilities, toxic “hot spots” and evacuation routes – a virtual tool kit for disaster mitigation and emergency response covering both sides of the border in both languages.” “… (S)ervices will be provided to border jurisdictions by teams drawn from a consortium of US and Mexican universities, NGOs, border businesses and their consultants.….. “The sister jurisdictions …. nominated for a possible starting point were the Municipio de Reynosa and Hidalgo County , (others) mentioned (are) Cameron County and the Municipio de Matamoros as well as Webb, Zapata and Starr Counties and the Municipio de Nuevo Laredo, Eagle Pass and Piedras Negras, Del Rio and the Municipio de Acuna, Presidio and Ojinaga, as well as El Paso County and the Municipio de Juarez. as soon as possible in 2007. ( From CTB Plan, Reg. Mitigation Action # 5)

2. Floods “Participate in the IBWC’s Rio Grande Flood Control Rehabilitation Program to insure that that plans and procedures in place to warn of impending flooding and protect lives in the event of a levee failure”. (CTB Reg. Mitigation Action #1)

3. Dam and Drain Failure: “Work with the IBWC to ensure that inundation maps are available for major public dams to show potential down-stream risk areas. (Reg. Mitigation Action #3) “Complete engineering studies of local flooding problems, assess local drainage systems and develop and implement a comprehensive, systems-wide Watershed Master Plan to prioritize drainage improvements.” (Reg. Mitigation Action #4)

4 Warning System:. “ Consider options and implement a high speed, geographically based alert and warning system that covers the entire Rio Grande border region. Develop protocols for use of the system, including preprogrammed “ (Reg. Mitigation Action #12)

5. Hurricane Surge Markers:  ‘Work with the state to install hurricane surge markers in coastal jurisdictions subject to tidal surge” REG-14.

6. Stream Gages: “Establish a capability for real-time automated warning of water levels in the river, streams and on roads lacking such equipment. Assess the need for installation of stream gages to measure and record in real time water levels”. REG-15.

7. Communications Interoperability: “Implement the Rio Grande Valley Corridor Communications Plan to achieve seamless, Level-4 radio interoperable communications for command and control in emergencies. Develop effective methods to extend interoperable communications into Mexico for cross-border emergency action.”REG-#16.

8.GIS – Data Clearinghouse: ” Enhance Local Geographic Information System (GIS) data on hazards and assets at risk.  “(T)he US IBWC HEC_RAS hydraulic model (has)include two-dimensional modeling (FLO2D) using topographic LiDAR data from Willacy, Cameron and Hidalgo Counties and Mexico.” (Note: The UT Space Science Center of any one of several border universities could  serve as a clearinghouse for digital geographic data and facilitate dissemination of data to diverse regional stakeholders)  REG-#18.

9. Public Education: “Conduct a public education program in both English and Spanish on the range of risks from natural and man-caused hazards and steps individuals can take to protect themselves, their families and their livelihoods. …….The program should target hard-to-reach populations…”.  REG-20.

10. Telecommunications MOU: “Enhance coordination between radio and television stations on the Mexican side of the border and U.S. local, State and Federal emergency management officials. Negotiate Memoranda of Understanding with Mexican telecommunication authorities as well as radio and television station owners.”  REG-21.

11.HAZMAT Freight Survey:  “Undertake a Freight and Hazardous Material Movement Study to identify the types of hazmat transported and thus provide transportation planners (an ability) estimate risks”  REG-22.

Of these actions, the “TRIMS” recommendation provides a specific risk-driven action agenda that can be followed by local governments if the US and Mexico wish. It should be the focus of urgent action at this time.

 

 

Draft 7-17-10 Ty Fain

Transboundary Risk Identification and Mitigation System – Scope and Installation in Pilot Sister Cities

There is only so much a non-profit consulting organization can do about the challenges the US and Mexico face in planning to mitigate natural disasters and catastrophic accidents. The Rio Grande Institute believes that TRIMS, the system it proposed as a regional projects in Section Eighteen of its Cover the Border Hazard Mitigation Plan can provide a start but there must be leadership to overcome the many legal/political impediments to the innovation and binational cooperation required.  A TRIMS is a set of arrangements adopted by adjacent “sister jurisdictions” to identify those hazards  that extend across the border and can only be dealt with by joint action; it is about cooperation based on shared interest and  is not to be confused with being a good neighbor. Here two sets of tasks RGI has proposed as first steps.

Task I – Disaster Information Management:  Under the US-Mexico 2008 Agreement on disaster cooperation, with major involvement of  regional and local governments key stakeholders such as  FEMA, Protecion Civil, IBWC  the border states, border universities should begin organizing, staffing and launching a binational border-based “Secretariat” to provide a management structure and leadership for developing curriculum, conducting training, offering technical assistance and undertaking research and development. The working group called for in the Agreement provides a means to begin this process immediately; it should be constituted and provided the mandate and resources for:

1. Creating an accessible and functioning GIS platform for mapping informational tools such as points of risk, effects of past disasters, hydrology, physical terrain, inundation scenarios, critical infrastructure, emergency facilities  evacuation routes.

1.  Designing, developing and overseeing cross-border communications networks applicable to the needs of local and regional emergency managers and consistent with emerging requirements and technical realities of 2010 US-Mexico communications agreements.
2. Facilitating the creation and implementation of cooperative agreements regarding shared software, super-computer access and data files between entities such as  UNAM, Texas A & M,  TSU, SRSU, ITESM, UT Space Science Center, IBWC, CONAGUA, INEGI, USCG, Sec. de Marina and  NOAA. This is needed to create transboundary GIS, data storage files and (especially) inundation models for real-time use by emergency management officials dealing with tidal surges, floods and rising sea levels.
3. Creating  Mexican government and FEMA/GDEM/HS- approved templates for functional directories and contact protocols to be used by twin cities along the US-Mexico border, including completion of a prototype for the twin cities of Del Rio and Ciudad Acuna and Eagle Pass-Piedras Negras.   This is the (amazingly) still-missing  “emergency managers rolodex” – an electronic  prototype for the sister cities along the entire U.S./Mexico/Canada borders.

 

Task II – Create a Model to Follow:   As a pilot undertaking for replication along the border create a model mitigation plan for twin cities of Del Rio and Ciudad Acuna and Eagle Pass-Piedras Negras; focusing on prioritized risks involving floods, dam failure inundations, HAZMAT emergencies, humanitarian evacuations and communications breakdowns.

1. Create A Risk-Based Planning Area - Set action priorities based upon shared clearly “mapped” risks and related mitigation,  response and recovery actions to be taken.
2. Harmonize Communication Technologies-    Make certain critical communication technologies  will be compatible in emergencies.
3. Define Channels for Cooperation- clearly delineate communication and command protocols and train  staff  to follow them; create a means for assuring back-up and replacement training
4. Insure Teamwork: -Develop interpersonal staff ties that will facilitate rapid cross-jurisdictional teamwork across the border.
5. Reduce the Language Barrier- Assure that key staff  needing to communicate in English or Spanish can do so effectively.
6. Homeland Security/ Mexican Government Cooperation – Undertake the above with full awareness, cooperation and support by border security officials.

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