Binational Hazardous Materials Prevention and Emergency Response Plan Among the County 

Of San Diego, the City of San Diego, California, and the City of Tijuana, Baja California

 January 14, 2013 1

BINATIONAL HAZARDOUS MATERIALS PREVENTION

AND EMERGENCY RESPONSE PLAN AMONG 

THE COUNTY OF SAN DIEGO,

THE CITY OF SAN DIEGO, CALIFORNIA

AND THE CITY OF TIJUANA, BAJA CALIFORNIA

January 14, 2013
Binational Hazardous Materials Prevention and Emergency Response Plan Among the County

Of San Diego, the City of San Diego, California, and the City of Tijuana, Baja California

 January 14, 2013

TABLE OF CONTENTS

SECTION PAGE

ACKNOWLEDGMENTS 2005-Present ...................................................................................... iv

ACKNOWLEDGMENTS 2003 .................................................................................................... 6

FOREWORD............................................................................................................................... 10

PARTICIPATING AGENCIES................................................................................................... 17

BACKGROUND ......................................................................................................................... 23

INTRODUCTION ....................................................................................................................... 23

1.0 TIJUANA/SAN DIEGO BORDER REGION................................................................. 25

1.1 General Aspects of the Region ........................................................................................ 25

1.1.1 Historical and Cultural Background ................................................................ 25

1.1.2 Geographic Location........................................................................................ 26

1.1.3 Topography and Climate.................................................................................. 27

1.1.4 Population ........................................................................................................ 27

1.1.5 Economy .......................................................................................................... 28

2.0 REGIONAL INFRASTRUCTURE................................................................................. 30

2.1 Transportation.................................................................................................................. 30

2.1.1 Roads................................................................................................................ 30

2.1.2 Media ............................................................................................................... 30

2.1.3 Railroads.......................................................................................................... 31

2.1.4 Airports............................................................................................................ 31

2.1.5 Maritime Ports ................................................................................................. 32

2.2 Water and Sewage Infrastructure..................................................................................... 33

2.2.1 Water................................................................................................................ 33

2.2.2 Sewage ............................................................................................................. 34

2.2.3 Electricity/Natural Gas..................................................................................... 35

3.0 LAWS AND REGULATIONS........................................................................................ 36

3.1 Authority.......................................................................................................................... 36

3.1.1 Laws and Statutes ............................................................................................ 36

3.1.1.1 Laws and Statutes in the United States....................................................... 36

3.1.1.2 Laws and Statutes in Mexico ...................................................................... 36

3.1.2 Regulations ...................................................................................................... 37

3.1.2.1 Regulations in the United States................................................................. 37

3.1.2.2 Regulations in Mexico ................................................................................ 37

3.1.3 Binational Agreements..................................................................................... 37

3.2 Other Applicable Contingency Plans............................................................................... 38

3.2.1 Binational Contingency Plans.......................................................................... 38

3.2.2 Mexico Contingency Plans.............................................................................. 38

3.2.2.1 Local and Regional Plans and Mutual Aid Agreements............................. 38
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TABLE OF CONTENTS CONTINUED

SECTION PAGE

3.2.2.2 State of Baja California Plans..................................................................... 38

3.2.2.3 Federal Plans............................................................................................... 39
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TABLE OF CONTENTS (Continued)

SECTION PAGE

3.2.3 United States Contingency Plans..................................................................... 39

3.2.3.1 Local and Regional Plans and Mutual Aid Agreements............................. 39

3.2.3.2 State of California Plans ............................................................................. 40

3.2.3.3 Federal Plans............................................................................................... 40

4.0 HAZARDS IDENTIFICATION...................................................................................... 41

4.1 Businesses Using, Handling or Storing Hazardous Materials (Fixed Facilities)............. 41

4.1.1 Hazards Analysis ............................................................................................. 41

4.1.2 Recycling Centers............................................................................................ 44

4.2 Risks Associated with Transportation ............................................................................. 45

4.2.1 Roads................................................................................................................ 45

4.2.2 Railroads.......................................................................................................... 46

4.2.3 Maritime Ports ................................................................................................. 47

4.2.4 Other Means of Transport................................................................................ 47

4.3 Ports of Entry ................................................................................................................... 48

4.4 Sensitive Populations and Vulnerable Areas................................................................... 50

4.4.1 Sensitive Populations....................................................................................... 51

4.4.2 Population Distribution.................................................................................... 53

4.4.3 Sensitive Natural Resources Areas.................................................................. 54

4.4.4 Tecate, California............................................................................................. 55

4.4.5 Tecate, Baja California .................................................................................... 55

4.4.6 Drinking Water Supplies and Wastewater Treatment ..................................... 56

County/City of San Diego, California ............................................................................. 57

4.5 Counter terrorism............................................................................................................. 57

4.5.1 U.S. Response .................................................................................................. 58

4.5.2. San Diego County Response............................................................................ 59

4.5.3 Mexican Response ........................................................................................... 59

5.0 ENVIRONMENTAL EMERGENCIES RESPONSE..................................................... 60

5.1 Local Emergency Response............................................................................................. 60

5.2 Declarations of Emergency.............................................................................................. 60

5.3 Levels of Mutual Aid Within Each Country.................................................................... 63

5.4 Federal Response ............................................................................................................. 64

5.4.1 U.S. Environmental Protection Agency........................................................... 64

5.4.2 Federal Attorney General for the Protection of the Environment.................... 65

5.5 Joint Response Team ....................................................................................................... 65

5.6 San Diego-Tijuana Emergency Response Communications ........................................... 66

6.0 BINATIONAL EMERGENCY RESPONSE OPERATIONS ........................................ 67

6.1 Initiation of Action........................................................................................................... 67

6.1.1 Incident Command Authority .......................................................................... 67

6.2 Binational Notification..................................................................................................... 69

6.3 Binational Mutual Aid Request ....................................................................................... 70
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TABLE OF CONTENTS (Continued)

SECTION PAGE

7.0 TRAINING AND EXERCISES ...................................................................................... 70

7.1 Training............................................................................................................................ 71

7.2 Exercises.......................................................................................................................... 71

LIST OF APPENDICES

Appendix A Sensitive Populations and Vulnerable Areas

Appendix B Response Resources 

Appendix C Federal Emergency Notification Form for Federal Assistance

Appendix D Abbreviations and Acronyms

Appendix E Definitions

Appendix F Revision Diary

Appendix G Binational Emergency Notification Flow Chart

Appendix H 24 Hour Emergency Notification 

Appendix I Local Emergency Notification Form

LIST OF MAPS

1. Aerial Photo of San Diego County, California, and Tijuana, Baja California border area

2. Land use in Tijuana, Baja California

3. Land use in South San Diego County, California (San Ysidro Area)

4. Land use in South San Diego County, California (Otay Mesa Area)

5. Land use in the City of Tecate, California

6. Land use in the City of Tecate, Baja California 

7. Status of the U.S.-Mexico Sister Cities Contingency Planning Activities
Binational Hazardous Materials Prevention and Emergency Response Plan Among the County

Of San Diego, the City of San Diego, California, and the City of Tijuana, Baja California

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ACKNOWLEDGMENTS 2003

This plan was prepared by a Steering Committee for the communities of San Diego County and 

the City of San Diego, California, and the City of Tijuana, Baja California. The planning effort 

was facilitated and funded by the U.S. Environmental Protection Agency, Region IX. The 

Steering Committee members include:

Alejandro Alvarez State Director, PROFEPA, Mexicali, Baja California

Guillermo Lopez Deputy Director, PROFEPA, Tijuana, Baja California

Lauren Volpini U.S./Mexico Program Manager, Chemical Emergency 

Preparedness and Response, U.S. EPA Region IX

Julian Torres Deputy Director, SEMARNAT, Tijuana, Baja California

Adam Birst Port Operations Director, U.S. Coast Guard, San Diego, California

Carlos Ponce de Leon Commander of the Second Naval District, Ensenada, Baja 

California

Samuel Musgrave Emergency Services Coordinator, Governor’s Office of 

Emergency Services, State of California

Raymundo Noriega Deputy Director, Civil Protection, State of Baja California

Rick Henson Division Chief, Department of Forestry, State of California

Hector Paredes Commander of the Otay Mesa Inspection Facility, California 

Highway Patrol

Mike Dorsey Chief, Hazardous Materials Division, Department of 

Environmental Health, County of San Diego, California

Tom Amabile HIRT Administrator, Office of Emergency Services, County of 

San Diego, California

Melinda Hathaway Hazardous Materials Manager, Fire-Rescue Department, City of 

San Diego, California

Julio Martinez Hazardous Materials Division Chief, Fire Department, City of 

Tijuana, Baja California

Antonio Alfaro Operations Chief, Municipal Civil Protection, Tijuana, Baja

California

Jim Dickinson Binational Liaison Detective, Police Department, City of San 

Diego, California

Elsa Saxod Director, Binational Affairs, City of San Diego, California
Binational Hazardous Materials Prevention and Emergency Response Plan Among the County 

Of San Diego, the City of San Diego, California, and the City of Tijuana, Baja California

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The Steering Committee would like to thank the following people for their assistance in the 

development of the plan:

Daniel Meer Chief, Emergency Preparedness and Public Safety, U.S. EPA 

Region IX

Jerry Martin Enforcement Coordinator for Southern California, Department of 

Homeland Security, San Diego, California

Steve Metruck Commander & Federal On-Scene Coordinator, U.S. Coast Guard, 

San Diego, California

Monica Ledezma Deputy Director, PROFEPA, Mexicali, State of Baja California

Norma A. Hernandez Frigate Commander, Second Naval District, Ensenada, Baja 

California

Gabriel Gomez Director, State Civil Protection, State of Baja California

Victor Gonzalez Research Coordinator, Civil Protection, State of Baja California

Amilamia Renteria Office of International Health, Secretariat of Health, State Public 

Health Service Institute, State of Baja California

Nick Vent Supervisor, Department of Environmental Health, Hazardous 

Materials Division, County of San Diego County, California 

Aura Quecan Border Specialist, Department of Environmental Health, Hazardous 

Materials Division, County of San Diego, California

Antonio Rosquillas Director, Municipal Civil Protection, Tijuana, Baja California

Carlos Gopar Chief, Fire Department, City of Tijuana, Baja California

Ken Malbrough Captain, Fire Communication, Fire-Rescue Department, City of 

San Diego, California

Enrique Camberos Battalion Chief, Fire-Rescue Department, City of San Diego, 

California

Alejandra Gavaldon Assistant Binational Coordinator, City of San Diego, California

Hector Vanegas Binational Planning Director, San Diego Association of 

Governments

Luis Alfonso Duarte Municipal Planning Institute, Baja California

Adrian Gaeta Municipal Planning Institute, Tijuana, Baja California 

Geoffrey Bogart Science Applications International Corporation, San Diego,

California

Rafaela Drummond Science Applications International Corporation, San Diego, 

California

Kristen Stephens Science Applications International Corporation, Oakland, 

California
Binational Hazardous Materials Prevention and Emergency Response Plan Among the County

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Roberto Caetano Science Applications International Corporation, San Diego, 

California

Rosa Maria Boadella English/Spanish Interpreter and Translator, Ciudad Juarez, 

Chihuahua

Yolanda Walther-Meade English/Spanish Interpreter, San Diego, California
Binational Hazardous Materials Prevention and Emergency Response Plan Among the County 

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ACKNOWLEDGMENTS 2011

This plan was revised and updated by a Steering Committee for the communities of San Diego 

County and the City of San Diego, California, and the City of Tijuana, Baja California. The 

planning effort was facilitated and funded by the U.S. Environmental Protection Agency, 

Region IX and BECC. The Steering Committee members include:

Lida Tan U.S./Mexico Emergency Preparedness and Response, U.S. EPA 

Region IX

Michael Vizzier Chief, Hazardous Materials Division, Department of 

Environmental Health, County of San Diego, California

Mario Rodríguez Deputy Director, Civil Protection, State of Baja California

Nick Vent Supervisor, Department of Environmental Health, Hazardous 

Materials Division, County of San Diego County, California 

Steven Khan Border Specialist, Department of Environmental Health, Hazardous 

Materials Division, County of San Diego, California

Julio Martinez Hazardous Materials Division Chief, Fire Department, City of 

Tijuana, Baja California

Antonio Alfaro Operations Chief, Municipal Civil Protección, Tijuana, Baja 

California

Ricardo Castellanos State Director, PROFEPA, Mexicali, Baja California

Jesus Jimenez Deputy Director, PROFEPA, Mexicali, Baja California

Hugo Adriel Zepeda Berrelleza Deputy Director, SEMARNAT, Tijuana, Baja California

Christopher Conley Chief of Response, U.S. Coast Guard, San Diego, California

Carlos Ponce de Leon Commander of the Second Naval District, Ensenada, Baja 

California

Sam Musgrave Emergency Services Coordinator, Governor’s Office of 

Emergency Services, State of California

Rick Henson Incident Commander, Department of Forestry, State of California

Hector Paredes Commander of the Otay Mesa Inspection Facility, California 

Highway Patrol

Tom Amabile Senior Emergency Services Coordinator, Office of Emergency 

Services, County of San Diego, California

Melinda S. Hathaway Hazardous Materials Manager, Fire-Rescue Department, City of 

San Diego, California
Binational Hazardous Materials Prevention and Emergency Response Plan Among the County

Of San Diego, the City of San Diego, California, and the City of Tijuana, Baja California

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BINATIONAL HAZARDOUS MATERIALS PREVENTION 

AND EMERGENCY RESPONSE PLAN AMONG 

THE COUNTY OF SAN DIEGO, THE CITY OF SAN DIEGO, CALIFORNIA, 

AND THE CITY OF TIJUANA, BAJA CALIFORNIA

FOREWORD

In 1999, the United States of America and Mexico signed a Joint Contingency Plan (JCP) that 

established a foundation for cooperative efforts regarding prevention, preparedness, response, 

and mitigation of hazardous substances releases in the border area, which is defined as 62.2 

miles (100 km) on either side of the inland international boundary. The JCP serves as an 

umbrella plan which sets forth a broad framework for planning efforts for the 14 Sister City pairs 

on the U.S.- Mexico border from California through Texas. The federal governments of the 

United States of America and Mexico acknowledge the need to develop plans and establish 

preventive and response mechanisms between Sister Cities. They recognize the benefits of cross 

border response and cooperative sharing of resources and manpower in times of national 

disasters. So too, the communities of San Diego County/City of San Diego, California and 

Tijuana, Baja California recognize their need to cooperate with each other in times of local 

disasters and to take measures to reduce risks and mitigate incidents.

This binational plan calls for increased communication, coordination and cooperation in response 

to an accidental or deliberate hazardous substance release in the border area. Its goals and 

objectives are to more effectively and efficiently utilize resources on both sides of the border to 

prevent and respond to emergency situations to protect public health, environment, and property 

in the border area.

It is not the intent of this plan to supersede any existing local, state, regional, or federal 

authorities or plan when a disaster or emergency has been declared in the border area. Rather, 

the purpose is to complement existing plans and to better serve the local community by creating 

an infrastructure for responding to emergencies.
Binational Hazardous Materials Prevention and Emergency Response Plan Among the County 

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 MEMORANDUM OF UNDERSTANDING

ON CROSS BORDER COMMUNICATIONS AND EMERGENCY RESPONSE 

STRATEGIES FOR POLLUTING INCIDENTS FOR THE COMMUNITIES OF 

TIJUANA, BAJA CALIFORNIA, MEXICO,

THE CITY OF SAN DIEGO, CALIFORNIA, UNITED STATES, AND 

THE COUNTY OF SAN DIEGO, CALIFORNIA, UNITED STATES

The City of Tijuana, Baja California, the County of San Diego and the City of San Diego, 

California have agreed to cooperate to effectively reduce the risk of threats to the public health, 

safety and welfare of their communities caused by explosions, fires, spills, or releases of 

hazardous substances into the environment. This Memorandum of Understanding (MOU) is to 

reinforce the cooperation among the jurisdictions to assist them in preventing and responding 

more efficiently to these emergencies, as well as properly notifying counterpart agencies in the 

event of an incident on either side of the international border. 

The signatory parties have developed this MOU and related emergency preparedness and 

response plan with the support of the U.S. Environmental Protection Agency pursuant to 

established binational environmental protection agreements between the two nations. Fourteen 

(14) pairs of sister cities along the US/Mexico border have been designated to develop similar 

agreements for binational cooperation. 

The following statements of principles are intended to serve as a guide to emergency planning 

and response authorities in all three jurisdictions.

1. Nothing in this understanding shall revoke or diminish the application of United States law 

in the United States or Mexican law in Mexico. However, the authorities of either country 

may request the assistance of the other country in order to mitigate the situation.

2. The agencies of all three jurisdictions charged with emergency responsibilities will seek to 

ensure that in areas of common concern, plans of all three jurisdictions for the emergency 

use of manpower, material resources, supplies, systems, and services shall, where feasible 

and practicable, be compatible and involve mutual training. To this end, and in accordance 

with the Border 2012 program, a Binational Emergency Preparedness and Response Task 

Force will be established and will meet regularly. The Task Force will address planning 

and preparedness activities, and training needs, and conduct a biennial binational exercise 

to evaluate and improve the coordination of this binational plan.

3. It is mutually agreed that this MOU does not relieve any of the mentioned parties of the 

obligation to provide protection against fires or other emergencies, according to their 

respective jurisdictions, and to use reasonable diligence in maintaining all equipment in 

adequate condition according to applicable standards. 

4. Although the binational plan establishes important protocols for ongoing coordination and 

cooperation, there remain issues that may require state or federal legislation to resolve, 

and other issues that may remain outstanding. Some of these challenges are:
Binational Hazardous Materials Prevention and Emergency Response Plan Among the County

Of San Diego, the City of San Diego, California, and the City of Tijuana, Baja California

 January 14, 2013

a) Emergency response equipment is not covered by U.S. insurance policies once the 

vehicles and equipment cross the international border in either direction.

b) Good Samaritan laws do not protect U.S. emergency responders from a personal 

liability lawsuit in Mexico. 

c) There does not now exist an accepted standard communication frequency to 

coordinate incident response within the border area with a common license to operate 

on compatible frequencies. 

It will be necessary to pursue resolution of these issues at the federal, state and local 

levels in both countries. A possible solution would be umbrella coverage through the 

state or federal governments for emergency vehicles and personnel, and licensing of the 

border emergency response participants to operate on compatible frequencies on both 

sides of the border. The Task Force will seek to explore options and resolution of these 

issues with those governmental agencies of jurisdiction. 

5. Response Limitations

In light of the conditions described in Section 4, the County of San Diego and City of San 

Diego are presently not able to cross the international border to respond to an incident in 

Mexico. Roles and responsibilities are limited to technical assistance, trainings, 

exercises, notifications, hazardous materials information sharing and the exchange of 

emergency responder equipment between both the County of San Diego and Emergency 

Responders from Mexico. The mutual exchange of equipment is necessary to assist in 

the identification and mitigation of potentially hazardous substances that may 

compromise public health and safety. Once health and environmental impacts have been 

alleviated, all equipment is to be returned to their respective governmental agency. There 

will also be a strong commitment to prevent and reduce risks, both accidental and 

deliberate on both sides of the border.

A) Notification

The signatory parties agree to provide timely binational notification to counterpart 

authorities in the event of a hazardous materials incident within a two-mile radius of the 

international border. A Notification Flow Chart has been developed and included in the 

binational plan. The parties agree to periodically exercise notifications to ensure proper 

and timely communications. Any changes in phone numbers, or proposed changes to 

notification procedures, will be communicated promptly. 

B) Hazardous Materials Information Exchange

To assist in the proper identification of potential risks, the County of San Diego and the 

City of Tijuana agree to the semiannual exchange of information regarding the location, 

types and estimated quantities of chemicals handled by facilities located within the twomile radius of the international border, as described in the binational plan. This 
Binational Hazardous Materials Prevention and Emergency Response Plan Among the County 

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information is to be treated as confidential and is intended only for use as a reference for 

first responders in these jurisdictions. This information will be exchanged on compact 

disk or through a web based interface. 

C) Technical Assistance

The signatory parties agree to provide limited technical assistance as requested by 

counterpart agencies. This technical assistance may include, but is not limited to, analysis 

of conditions and circumstances of a given incident, the assessment of potential 

equipment purchases and training, exercises, prevention and risk reduction. Training will 

be provided, as funding is available.

6. For the purpose of emergency relief, and health and welfare services, each government 

will use its best efforts to ensure that those affected by an incident receive the best 

treatment available.

7. Each government will use its best efforts to protect and restore the natural environment 

during and after an incident.

8. Every two years, the parties will examine the present MOU and implementation and 

decide whether it should be modified. In addition, at any time, the parties may examine 

this understanding and propose changes to the other party by personal service or certified 

mail. Changes will be considered effective starting on the date of the amendment's 

signing by all parties.

9. Any party to this understanding may withdraw at any time by giving thirty calendar days 

prior written notice to all the parties. 

Any party may change its service address by giving five calendar days written notice to 

each of the other parties. 

Notice of withdrawal and change of address shall be served by personal service or by the 

respective party's Postal Service certified mail addressed to:

Board of Supervisors Presidencia Municipal

County of San Diego Ayuntamiento de Tijuana, B.C.

1600 Pacific Highway Av. Independencia Esquina Paseo del Centenario

San Diego, California 92101 Zona Urbana Río, C.P. 22320

City of San Diego

City Clerk

202 C Street

San Diego, California 92101 
Binational Hazardous Materials Prevention and Emergency Response Plan Among the County

Of San Diego, the City of San Diego, California, and the City of Tijuana, Baja California

 January 14, 2013

In witness, whereof, this understanding has been executed on October 24, 2003. 

 

 //Original signed by// //Original signed by//

Greg Cox C. Jesús González Reyes

Chairman, Board of Supervisors Presidente Municipal

San Diego County, California Tijuana, Baja California

 //Original signed by// //Original signed by//

Clerk of the Board Secretario del Ayuntamiento

San Diego County, California Tijuana, Baja California

 //Original signed by// 

Dick Murphy 

Mayor

City of San Diego, California

 //Original signed by// 

City Clerk

City of San Diego, California
Binational Hazardous Materials Prevention and Emergency Response Plan Among the County 

Of San Diego, the City of San Diego, California, and the City of Tijuana, Baja California

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In witness, whereof, this understanding has been executed November 17, 2011.

 

 //Original signed by// //Original signed by//

Greg Cox Carlos Bustamante Anchondo

Chairman, Board of Supervisors Presidente Municipal

San Diego County, California Tijuana, Baja California

 //Original signed by// //Original signed by//

Clerk of the Board Secretario del Ayuntamiento

San Diego County, California Tijuana, Baja California

 //Original signed by// 

Bob Filner

Mayor

City of San Diego, California

 //Original signed by// 

City Clerk

City of San Diego, California
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PARTICIPATING AGENCIES

Federal, state and local officials from the United States and Mexico joined to develop this 

binational prevention and emergency response plan for the San Diego/Tijuana border area. This 

plan will improve communication, coordination and cooperation among members of the 

emergency planning and response community regarding a hazardous substance release. The 

objectives of the plan are to use resources effectively, to reduce polluting incidents and to protect 

public health, safety and the environment.

A Steering Committee composed of key agencies listed below guided the development of this 

regional accord. 

The following are brief introductions to the governmental agencies that participated in the plan 

development. These same entities will ultimately be responsible for its successful 

implementation.

MEXICO AGENCIES

Baja California Civil Protection Administration 

The Civil Protection Administration is in charge of organizing, coordinating and 

operating the State’s Civil Protection System, as well as conducting strategic 

planning and coordinating emergency response actions when the needs of a 

municipality surpass its resources to respond to an emergency or when so requested. The State 

Civil Protection Administration provides guidance to local authorities and provides resources to 

identify and mitigate risks. The Administration sets policies for planning and responding to 

natural or technological catastrophes. 

www.depcbc.gob.mx

Civil Protection Administration of the Municipality of Tijuana 

The Civil Protection Administration at the local level in Tijuana assumes a general 

coordinating role in major emergency events. Civil Protection is responsible for the 

development of prevention programs, as well as response and recovery in the case of major 

emergencies. Civil Protection also keeps and maintains records of human resources, material and 

equipment to be used in emergencies.

Secretariat of the Environment and Natural Resources (SEMARNAT)

SEMARNAT has among its main functions the establishment of Mexican Official 

Standards in the area of ecology and compliance monitoring, as well as regulating and 

controlling activities considered high risk. This includes the generation, handling and final 

disposal of materials and wastes considered hazardous to the environment and ecosystems. Other 

related functions are: to regulate the sustainable recovery of natural resources and flora and 

fauna, both land and aquatic; and to evaluate findings of environmental impact studies and risk 

assessments to prevent ecological accidents. The Secretariat also participates in the prevention 

and control of emergency and environmental incidents in accordance with civil protection 

policies and programs. 

www.semarnat.gob.mx
Binational Hazardous Materials Prevention and Emergency Response Plan Among the County

Of San Diego, the City of San Diego, California, and the City of Tijuana, Baja California

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Tijuana Fire Department

The Tijuana Fire Department is the primary response entity for the City of Tijuana. 

The Department has many capabilities, including hazardous materials response. The 

Fire Department works in cooperation with local Civil Protection authorities. The Tijuana Fire 

Department has developed a solid working relationship with counterpart agencies in San Diego.

Federal Attorney General for the Protection of the Environment (PROFEPA)

PROFEPA is in charge of monitoring and promoting compliance with environmental 

and natural resource legislation, through authority actions (inspection and monitoring), through 

its personnel directly, or concurrently with the community and other government agencies. It 

evaluates and imposes sanctions on illegal acts in order to contribute to the permanent 

improvement of renewable natural resources and environmental conservation. PROFEPA’s 

scope of environmental authority in the industrial area is: hazardous wastes, risks, air, 

environmental impacts, noise and environmental audits. With regard to natural resources, the 

areas of PROFEPA’s authority are: forestry, wild life, cynegetics, environmental impact, the 

marine land federal zone and phytosanitary.

www.profepa.gob.mx

Secretariat of the Navy

This Secretariat works closely with SEMARNAT, PROFEPA and the United States 

Coast Guard regarding polluting marine incidents affecting the United States and 

Mexico. The Secretariat of the Navy and the United States Coast Guard signed the MEXUS 

agreement, which provides joint response protocol to polluting incidents in the marine 

environment. The Pacific Annex to this agreement, called MEXUSPAC, refers specifically to 

the marine environment in the California and Baja California area.

www.semar.gob.mx 

Secretariat of Health

This Secretariat is in charge of enforcing the Epidemiology Surveillance System to 

respond to manmade and natural incidents. The Secretariat also maintains hospital units with 

emergency services in border cities. The Environmental Health department of the Secretariat 

coordinates service sites at the border in charge of International Health for control and regulation 

purposes. Environmental Health also regulates technological incidents involving chemical and 

radioactive substances.

www.salud.gob.mx

Mexican Customs

The main function of Customs is to inspect, monitor and control the import and export of 

merchandise, including its means of transportation, by ensuring compliance with the provisions 

issued by the Secretariat of the Treasury, and other authorized Federal Government secretariats. 

Customs also assists in guaranteeing national security, and protecting the country’s economy, 

public health and the environment by preventing the flow of hazardous or illegal materials into 

national territory. Customs in the city of Tijuana, Baja California has sections and/or checkpoints 

at the Abelardo L. Rodriguez International Airport, Otay Mesa and Puerta Mexico. 

www.aduanas.sat.gob.mx
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Federal Preventive Police (PFP)

The main function of the Federal Preventive Police is to safeguard people’s rights, 

prevent crime, and maintain liberty, public order and peace under the terms of the 

Federal Preventive Police Law. For public security purposes, PFP has the authority to monitor 

and inspect the import and export of merchandise, as well as the entrance and exit of persons at 

airports, marine ports authorized for international traffic, Customs facilities, fiscal yards, 

Customs sections, gates and Customs checkpoints. With regard to emergency response, PFP

works at the request of the other authorities, particularly with Civil Protection in public disaster 

situations, high-risk situations or natural catastrophes. The PFP is trained to use the Emergency 

Response Guide in cases that involve responding to hazardous materials releases. The PFP is 

also an important agency in the monitoring of potential terrorist activity in Mexico. 

UNITED STATES AGENCIES

U.S. Environmental Protection Agency, Region IX 

U.S./Mexico Chemical Emergency Preparedness and Response

EPA’s U.S./Mexico Border Program for Chemical Emergency Preparedness and 

Response conducts, sponsors and participates in a variety of activities to help border 

communities plan for and respond to accidental and deliberate releases of hazardous materials. 

EPA conducts scientific and technical research to identify hazardous material risks. EPA 

promotes program development, including facilitation of binational, multi-agency forums and 

Sister City Plans. The agency provides and actively advocates funding and support to improve 

local emergency responder readiness and sponsors hazardous material exercises. EPA provides 

training and support to other U.S. federal, local and state agencies, as well as to emergency 

responders in Mexico. Upon activation of the Joint Response Team, EPA is authorized to 

provide technical assistance and conduct emergency response actions in Mexico, in cooperation 

with Mexican authorities.

www.epa.gov

Bureau of Customs and Border Protection

Any hazardous material incidents occurring at the ports of entry will be contained as 

much as possible and first responders will be notified. Federal Inspection employees 

assigned to the ports of entry are trained to deal with emergency situations and have 

emergency response plans in place. The Federal Agencies have installed a Border Mutual Aid 

Radio System (BMARS) that provides immediate communications capabilities with Mexican 

officials at the Mexico/U.S. border crossings for coordination and notification of any serious 

incidents. Customs management officials participate in the Border Liaison Mechanism (BLM) 

Group chaired by the U.S. and Mexican Consul Generals. The Group is comprised of a variety of 

working groups and meets regularly to address any cross border issues dealing with law 

enforcement situations, emergency procedures or other concerns.

www.cbp.gov
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State of California Governor’s Office of Emergency Services (OES)

OES coordinates overall state agency response to major disasters in support of local 

government. OES interfaces with the U.S. federal government for emergency 

response and recovery. OES works with the Federal Emergency Management 

Agency for disaster preparedness and response. OES manages the California Specialized 

Training Institute in San Luis Obispo. OES is active in U.S./Mexico border projects, including 

the Coast Guard’s MEXUSPAC Plan.

www.oes.ca.gov

San Diego County Office of Emergency Services

The San Diego County Office of Emergency Services provides training to local 

governments and citizens on preparing for disasters. This office provides emergency 

information through the use of the Emergency Alert System (EAS) and the Life 

Saving Information for Emergencies Radio System (L.I.F.E.). This office also coordinates the 

development of the operational Area Emergency Plan and provides training to member 

jurisdictions in the use of the plan. The Office serves as a coordinator. The Office administers 

the County’s Hazardous Incident Response Team (HIRT) program and is a partner with the 

HIRT team to provide joint chemical and biological emergency response to the cities and 

unincorporated areas throughout the County. The Office works closely with the City of San 

Diego Fire-Rescue Department and the County’s Department of Environmental Health, and 

operates the County’s Emergency Operations Center.

www.co.san-diego.ca.us/cnty/cntydepts/safety/disaster

County of San Diego Department of Environmental Health (DEH), 

Hazardous Materials Division (HMD)

The mission of DEH is the protection of the environment and enhancement of public 

health by preventing disease, promoting environmental responsibility and, when 

necessary, enforcing environmental and public health laws. The Department of Environmental 

Health, Hazardous Materials Division, is the Certified Unified Program Agency (CUPA) for the 

County. HMD is responsible for regulating hazardous materials and waste, tiered permitting, 

hazardous materials business plans and chemical inventory, underground storage tanks, risk 

management plans, and medical wastes in business located throughout San Diego County. 

HMD’s emergency response team is part of the County’s Hazardous Incident Response Team 

(HIRT) and responds to over 300 emergency incidents each year. HMD also has a pivotal role, in 

coordination with the U.S. EPA, in emergency response planning and training. The HMD, under 

contract with the Department of Toxic Substances Control (DTSC) and in coordination with U.S. 

Customs Service, monitors the Otay Mesa and Tecate ports of entry for illegal shipments of 

hazardous wastes. In addition, HMD provides training in the United States and Mexico on 

requirements for the handling, storage, and transportation of hazardous wastes and materials, 

pollution prevention and emergency response.

www.sdcdeh.org
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United States Coast Guard

The U.S. Coast Guard is responsible for preventing and coordinating responses to 

oil and other hazardous material spills in the coastal zone or marine environment in the United 

States/Mexico border area through the United States/Mexico Joint Contingency Plan and the 

MEXUS Plan. The Commanding Officer of the San Diego Coast Guard Marine Safety Office, as 

the Pre-designated Federal On-Scene Coordinator (FOSC), actively coordinates border planning, 

preparedness and response activities with the Second Naval District in Ensenada, Baja California 

and is implementing a regional annex to the MEXUS Plan. Should a discharge occur, the U.S. 

Coast Guard maintains a rapid response capability to coordinate the containment and recovery of 

oil and hazardous substances from pollution incidents. In addition, the U.S. Coast Guard 

National Strike Teams are at the ready to assist in responses to major oil or other hazardous 

material spills in the inland waterways and coastal regions.

www.uscg.mil/uscg.shtm

San Diego Fire-Rescue Department

San Diego Fire-Rescue Department staffs a Hazardous Materials Response Team 

with on-duty firefighter personnel trained to the Hazardous Materials Technician and 

Specialist level. The mission of this team is to protect life, property, and environment from the 

adverse effects of hazardous materials emergencies. This specialized response service is 

provided to all areas within the City and County of San Diego. As a resource to the local onscene Incident Commander, the Hazardous Materials Response Team primarily conducts 

identification, rescue, and mitigation operations for all types of chemical and biological 

emergencies. All Fire-Rescue personnel are trained to the Hazardous Materials First Responder 

Operational level, are skilled in performing mass casualty decontamination, and work effectively 

in the Incident Command System (ICS). The Fire-Rescue Department has bilingual liaisons 

(Spanish/English) who are available to assist with binational events, including training and 

technical assistance.

www.sannet.gov/fireandems

California Department of Forestry and Fire Protection (CDF)

CDF has its own binational aid agreement with Mexico through the Border Agency Fire 

Council. The agreement enables firefighters to travel beyond the border of the 

neighboring country to fight a fire, up to one mile into Mexico or the United States. 

Firefighting equipment has already been pre-registered with U.S. Customs to facilitate its return, 

which must occur through a designated port of entry. The Fire Council has received national 

recognition for its efforts.

www.fire.ca.gov

California Highway Patrol (CHP)

CHP is an emergency responder and scene manager. CHP has jurisdiction on all 

freeways and all roadways within the unincorporated areas of California. CHP has a 

key role in emergency response involving areas within its jurisdiction. The CHP contributes to 

public safety through its truck inspection facility at Otay Mesa. www.chp.ca.gov
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San Diego Police Department

The San Diego Police Department is a public safety agency with emergency response 

capabilities. Operating under the Standardized Emergency Management System 

(SEMS) / Incident Command System (ICS) the SDPD provides the following 

functions at the scene of an emergency: The SDPD will assess the situation immediately and 

request appropriate agencies and resources. The SDPD will provide scene security, crowd and 

traffic control. If necessary, the SDPD will develop and implement a plan to evacuate. If the 

incident is within the jurisdiction of the City of San Diego and is determined to be the result of 

criminal activity, the SDPD will conduct a joint investigation with other involved agencies.

www.sannet.gov/police
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BACKGROUND

In 1983, the United States of America and Mexico signed the La Paz Agreement. This landmark 

document sets forth binational cooperation for the protection, improvement and conservation of 

the environment in the border area. Annex II of the La Paz Agreement created a Joint Response 

Team (JRT) whose major responsibility was to author a Joint Contingency Plan (JCP). 

In 1988, the U.S. and Mexico signed the Joint United States of America - United Mexican States 

Contingency Plan for Accidental Releases of Hazardous Substances Along the Border, revised in 

June 1999 as the Joint United States - Mexico Contingency Plan for Preparedness for and 

Response to Environmental Emergencies Caused by Releases, Spills, Fires, or Explosions of 

Hazardous Substances in the Inland Border Area.

The JCP specifically calls for the development of Sister City Plans for the 14 Sister City pairs 

along the U.S.-Mexico border from California to Texas. Sister City planning is a vehicle to lay 

out a binational framework of cross border cooperation and collaboration of resources and 

manpower during a polluting incident in the border area and a communications strategy to more 

effectively control an emergency situation.

This document is a binational emergency response and prevention plan for the Tijuana, Baja 

California and the County/City of San Diego, California border area. It consists of an overview 

of the plan area, the identification of the hazards associated with hazardous materials during their 

use, handling, transportation and storage, a description of the specific elements for the activation 

of the Binational Mutual Aid Request, and the establishment of the Binational Emergency 

Response Operations under the Standardized Emergency Management System (SEMS). This 

plan specifically addresses the requirement under the JCP to prepare Sister City plans. 

INTRODUCTION

The Binational Hazardous Materials Prevention and Emergency Response Plan among the 

County of San Diego, the City of San Diego, California, and the City of Tijuana, Baja California

provides a mechanism for cooperation between the United States and Mexico in response to 

hazardous materials incidents. These incidents may pose a significant threat to the population, 

environment and property within a two-mile radius, north and south of the international border. 

If an incident were to happen on either side of the border, and this incident were of such 

magnitude that it may affect the neighboring country, a notification system will be activated 

between the United States and Mexico. The local communication will take place between San 

Diego and Tijuana if notification or technical support is needed. However, communication at the 

federal level between the two governments will take place if additional personnel, instruments

and equipment are needed as auxiliary support to the incident. 

a) Purpose

The purpose of the Binational Hazardous Materials Prevention and Emergency Response Plan is 

to protect public health, safety and the environment in the border area through the prevention of 

and adequate response to hazardous materials incidents.
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b) Objectives

The specific objectives of the Binational Hazardous Materials Prevention and Emergency 

Response Plan are:

 Identification and development of a binational database of chemical hazards associated 

with the use, handling, transportation, and storage of hazardous materials in the border 

area.

 Establishment of specific elements for the Binational Mutual Aid Request.

 Development of a reliable binational hazardous materials incident notification system.

 Establishment of roles and responsibilities of the U.S./Mexico response agencies during a 

binational hazardous materials emergency under the Standardized Emergency 

Management System (SEMS).

 Coordination of binational training, joint exercises and technical assistance.

c) Scope

The Binational Hazardous Materials Prevention and Emergency Response Plan applies to 

hazardous materials incidents that have the potential to affect the inland border area of the City 

of Tijuana and the County or City of San Diego. This area encompasses two miles north and 

south of the boundary between the United States and Mexico.

 Polluting incidents affecting the marine environment are covered in the MEXUSPAC 

Geographic Annex, of the MEXUS Plan, signed on February 26, 2003 by the Secretary 

of the Navy of Mexico and the United States Coast Guard. The Binational Hazardous 

Materials Prevention and Emergency Response Plan will coordinate with the 

MEXUSPAC Geographic Annex when a hazardous materials incident affects the inland 

border area and the coastal waters of the Pacific Ocean of both countries.

 This Plan at no time usurps existing federal, state, county, regional, or municipal plans 

within the jurisdictional boundary addressed by this plan.

 The initial and prime responsibility for providing immediate assistance rests with the 

city, county or regional government affected.
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1.0 TIJUANA/SAN DIEGO BORDER REGION

1.1 General Aspects of the Region

1.1.1 Historical and Cultural Background

In 1848, the international boundary between the United States and Mexico was established 

across the Tijuana River Valley an intermittent river, 195 km (121 mi) long. A Mexican customs 

post was established in 1874 at the border crossing of the small town to tax trade between San 

Diego and Baja California. In 1906, the San Diego & Arizona Eastern railway began to 

construct a line from San Diego to Yuma that traversed the border. The railway was completed 

in 1919, stimulating growth in the area. The City of Tijuana was established in 1889 and by 1910 

the population was only 700 individuals.

The current town of San Ysidro, located in the U.S. adjacent to the international border, was 

established in 1909. In 1916, the Hatfield flood destroyed homes and farms, forcing families to 

sell their holdings to the employees of the Sunset Racetrack in Tijuana. Almost overnight, San 

Ysidro became a tent city that accommodated a sudden influx of employees who lived in the 

United States and traveled to work across the border.

In the early part of the twentieth century, Tijuana had grown as an attraction for visitors from 

San Diego for horse racing, boxing matches, shopping, art, music and the hot springs of Agua 

Caliente. 

The Bracero Program began in 1942, allowing thousands of Mexicans to work in temporary 

agricultural jobs in the United States. Many of these individuals remained as permanent border 

residents after the program was terminated in 1964. In 1965, Mexico implemented the Border 

Industrialization Program that led to the development of the maquiladora (assembly plant 

industry), as a way to create employment along the border. By the early 1980s, maquiladoras

emerged as the most dynamic element in Tijuana’s economy. By the mid 2000s, the industry 

employed some 170,000 workers in Tijuana. Jobs in the maquiladora sector and potential 

employment in the United States helped attract continuing waves of migrants from central and 

southern Mexico, assuring the rapid growth of both Tijuana and the border area.

San Diego and Tijuana are linked inextricably by geography, history, culture and economics. 

The border is an environment of opportunities for both cities to share their own cultural identities 

through handicrafts, food, music, and education.

The migratory influx to Tijuana is the most dynamic on the U.S.-Mexico border. People from 

different cultural regions of Mexico have settled along the border and have developed a 

complexly layered cultural and social environment. Border peoples have developed distinctive 

styles, social organizations, and local economies. 

Tijuana’s literacy rate for the population over 15 years of age is one of the highest in Mexico. 

Tijuana schools provide students quality education to meet the demands of the highly 

competitive regional job market. The City of Tijuana has 12 institutions of higher education, 

including universities, technological institutes, and research centers. 
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The City of San Diego is well known for its research and development centers. San Diego has 

five highly respected universities and also tops all other U.S. cities in the number of Ph.D.s per 

capita. The University of California at San Diego (UCSD) is recognized worldwide as a center 

for scientific learning and research. The institution ranks annually in the top 10 universities 

nationwide in terms of quality programs and is a leading recipient of research and development 

funds. Many of San Diego's biotechnology and bio-medical companies are located close to this 

university campus. San Diego State University (SDSU) is the largest California State University 

campus and home to the Defense Conversion Center, which focuses on industries converting 

from defense products to commercial products. 

Ethnic and racial diversity plays a very important role in a society, providing an environment for 

cultural exchange. San Diego’s ethnic/racial population has been changing through the years. 

Table 1 provides data and projections of those changes according to data from San Diego 

Regional Chamber of Commerce and U.S. Census Bureau.

Table 1

San Diego County Ethnic/Racial population (%)

1970 2000 2010 2020 

White 83.8 59.3 48.5 48.4

Hispanic 9.1 25.0 32.0 33.6

Black 4.5 6.1 4.7 5.8

Asian/other 2.5 9.6 11.1 12.3

 Source: San Diego Regional Chamber of Commerce, 2002; U.S. Census 2010, U.S. Census Bureau

According to the 2000 Census, and reflecting the ethnic diversity of the city, 67% of San Diego 

residents speak only English, 11.4% residents speak English and Spanish, 3.8% speak English 

and another Asian or Pacific Island language and 2.3% of residents speak English and another 

Indo-European language.

1.1.2 Geographic Location

The City of Tijuana is located in Northwestern Baja California, 130 miles from the state capital 

of Mexicali. The city rests at an altitude of 65.61 feet (20 meters) above sea level, at 32o 31’ 

latitude and 117o 01’ longitude. The city covers 427 square miles (1,108 sq. km). 

The neighboring areas of Tijuana are San Diego City and County to the north, the municipality 

of Tecate to the east, the Pacific Ocean to the west and the municipality of Rosarito and the Port 

of Ensenada to the south. 

San Diego County stretches 65 miles from north to south, and 86 miles from east to west, with 

elevations ranging from sea level to 6,500 feet. Its latitude is 32o 42’ and its longitude is 117o 

09’. The County covers 4,200 square miles (10,893 sq. km). San Diego County shares common 
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borders with Orange County to the northwest, Riverside County to the north, Imperial County to 

the east, and the state of Baja California to the south.

The San Diego-Tijuana region has a population of over 5 million, making it the largest binational conurbation shared between the United States and Mexico. It also forms the largest 

“twin-cities” on the U.S.-Mexico border. Tijuana is the most populated city in the State of Baja 

California and San Diego is the second most populated city in the State of California. 

1.1.3 Topography and Climate

The topography of the San Diego-Tijuana area has elevations ranging from sea level on the west 

to more than 3,550 feet (1,082 meters) at Otay Mountain to the far east. The western region (twothirds) is composed largely of relatively flat marine terraces comprised of conglomerate and 

other sedimentary rocks that are dissected by steep-sided valleys. In the west, severe erosion has 

left few remnants of upland areas. To the east, the urban zone of Otay Mesa-Mesa de Otay is 

located in a large area of relatively flat upland areas. The eastern region (one-third) is the most 

rugged section and is characterized by deeply dissected terrain developed on rocks that are 

largely igneous in nature.

The climate of the San Diego-Tijuana region is tempered by the Pacific Ocean, which results in 

relatively cool summers and warm winters. Temperatures below freezing are rare, while hot 

weather, 90 degrees and above, are more frequent. More than 80 percent of the region's rainfall 

occurs in the period between December and March. Average annual rainfall is approximately 9.9 

inches per year. 

The weather patterns in the San Diego-Tijuana area are affected by the "Marine Layer", a giant 

layer of air in direct contact with ocean water. This moist, cool air covers the region at night and 

recedes during the day, resulting in foggy or hazy mornings that usually burn off by noon.

Santa Ana winds are another local weather phenomenon. Driven down from the mountains to the 

east, Santa Ana winds compress as they descend to sea level, generating heat and high 

temperatures. Santa Ana winds generally occur in September and October, sometimes in 

November. The temperature often exceeds 90 degrees during these winds; however, the heat is 

offset by very low humidity, which often drops below 20 percent.

1.1.4 Population

Based on 2010 figures from the U.S. and Mexican Census Bureaus, the estimated cumulative 

population of the San Diego-Tijuana area is 4.5 million, with 3.0 million people residing in San 

Diego County, and 1.5 million people residing in the City of Tijuana.

Tijuana's population of 1.5 million represents almost half of the State's total population. Its 

population grows faster than the national and the state average due to available economic and 

social opportunities. Most of the population is between 16 and 30 years of age. Approximately 

41.76% Tijuana residents were born in the state of Baja California; 53.54% have migrated from 

different areas of Mexico, and 4.7% are foreign residents. 
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The City of Tijuana has an annual growth rate of 6.2%. According to City Planning Department 

forecasts, by the year 2015, the population of Tijuana will be over 2.2 million people.

San Diego County is the sixteenth largest metropolitan area in the United States with a 

population of over 2.8 million residents. According to information provided by U.S. Census 

Bureau and the U.S. Department of Commerce, from 1990 to 2010 San Diego County increased 

its population by 12.6%.

The San Diego-Tijuana region is one of the most demographically dynamic of the entire U.S.-

Mexico border. Based on a 2010 Census Bureau ranking of metropolitan areas, and summarized 

by the Greater San Diego Chamber of Commerce, the San Diego-Tijuana area holds eighth place 

for population in the United States. 

Table 2 provides data and projections for population growth in the binational San Diego-Tijuana 

region: 

Table 2 POPULATION

1990 2000 2010

Tijuana, B.C. 747,384 1,212,232 1,559,683

San Diego, California 1,110,549 1,223,400 1,307,402

San Diego County 2,498,016 2,813,833 3,095,313

Source: U.S. Census Bureau: 2010 Census; INEGI México: 2010 Data

1.1.5 Economy

The San Diego regional economy continues to undergo a dynamic transformation propelled by 

high-technology companies that compete in international markets. These high-technology firms 

produce products and services most in demand in the global economy. San Diego has 

experienced economic development in the defense industry, as well as the biotechnology, 

aerospace, electronics and computer industries. Based on information from the San Diego 

Regional Chamber of Commerce, San Diego’s high technology economy in 2002 is distributed 

as follows: 19% aerospace/defense, 19% telecommunications, 18% bioscience, 13% electronics, 

10% computers/peripherals, 9% software, and 12% other high-tech. These sectors account for 

148,500 jobs in San Diego County. 

The multi-billion dollar visitor industry has also been an important sector of economic power and 

stability in San Diego. The visitor industry is San Diego’s third largest economic sector, behind 

only manufacturing and military/defense.

The City of Tijuana has grown into an important manufacturing center with 577 maquiladoras, 

employing more than 162,367 workers, according to the information from 2006 Census (INEGI). 
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However, a slowdown in the U.S. economy, coupled with a growing number of operations being 

moved to Asia, has contributed to decrease in the number of maquiladoras in Tijuana over the 

past two years. 

Tijuana's economic base is comprised of trade, tourism and manufacturing, primarily. Based on 

the information from the Public Registry of Property and Commerce, Tijuana’s business sector 

consists of 35% commerce services, 24% manufacturing, 18% transportation, 5% agriculture, 

5% construction, 3% mining and 10% other.
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2.0 REGIONAL INFRASTRUCTURE

2.1 Transportation

2.1.1 Roads

Tijuana

Tijuana is connected to the rest of Mexico by the Mexico-Nogales Highway 2, and to the rest of 

Baja California with the trans-peninsular Highways 1 and 3. Its proximity to San Diego enables 

immediate access to the State of California and North America. There is also the 

Tijuana/Tecate/Mexicali toll road, which connects Tijuana to those cities, following the 

California/Baja California border.

In the City of Tijuana, six roads carrying high volumes of traffic connect the area of La Mesa to 

the River Zone: Boulevard Cuauhtémoc, Acceso Otay-Buena Vista, Boulevard Lázaro Cárdenas 

Poniente, Boulevard Lázaro Cárdenas Oriente, Boulevard Manuel J. Clouthier, and Boulevard 

Héroes de la Independencia-Boulevard Héctor Terán Terán. The historic urban core of Tijuana, 

the area adjacent to Avenida Revolución, is connected to the Avenida Revolución-Boulevard 

Agua Caliente-Boulevard Díaz Ordaz corridor. This corridor, characterized by commercial strip 

development, has a very heavy volume of public transportation. With no overpasses to speed 

cross traffic, the route is considerably congested. The Paseo de los Héroes and vías rápidas 

(expressways) provide additional road capacity parallel to this route. The connection of the Zona 

Centro with Playas de Tijuana to the west is by the four-lane limited access Autopista Playas that 

traverses the difficult topography of the western hills. The Playas de Tijuana and Otay Mesa 

sectors are connected by congested surface streets that traverse the Zona Centro and a beltway, 

the Libramiento Oriente and Libramiento Sur, which loops around the city to the south. 

San Diego

San Diego County has four major interstate freeways and six state highways. Among them, 

Interstate 5 runs north-south and connects the northwest of the United States to Canada and the 

southwest to Mexico; Interstate 8 runs east-west and connects coastal areas of San Diego 

eastward to Arizona; Interstate 15 runs north-south parallel to I-5 and connects the northwest of 

the United States to Canada and the inland southern region of the county. Interstate 805 runs 

north-south and connects the inland areas of San Diego, National City and Chula Vista. 

Highway 905 connects Otay Mesa to I-5 and I-805. Highway 54 runs east-west and connects I-5 

to the southeastern region of the city. 

2.1.2 Media 

The San Diego/Tijuana region has an extensive array of media, including print, radio and 

television. Many of these sources provide coverage to both sides of the international border, and 

several are in Spanish. 
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Tijuana

In the City of Tijuana, there are nine television stations. With regard to print media, there are 

four main daily newspapers and some weekly publications. There are 14 AM radio stations and 

16 FM radio stations in Tijuana. 

San Diego

In San Diego County, there are 12 television stations (non-cable) and 10 cable television stations. 

With regard to print media, there are three main daily newspapers and numerous weekly and 

monthly publications. There are 13 AM radio stations and 24 FM radio stations in San Diego 

County.

2.1.3 Railroads

Tijuana

The city of Tijuana offers daily rail freight service to and from the Ports of San Diego and Los 

Angeles via the SD&IV (San Diego-Imperial Valley Rail System). Additionally, the Amtrak 

station in San Diego, located only 20 minutes away, offers 20 daily passenger trips to and from 

Los Angeles. The railroad station is connected by trolley to the San Ysidro Border Crossing 

facilitating commuter traffic between the two cities.

Mexicali, two and a half hours distant from Tijuana, has connecting rail routes via the Mexican 

National Rail System to every destination in Mexico.

San Diego

The State of California finances operation of the Pacific Surfliner route, which lies in a generally 

northwest by southwest direction along the Pacific Coast of California, connecting the cities of 

San Diego, Los Angeles, Oxnard, Santa Barbara, and San Luis Obispo. 

Amtrak California Pacific Surfliner operates seven days per week with 11 daily round-trips 

between San Diego and Los Angeles; one round trip each day operates between San Luis Obispo 

and San Diego, while another round trip per day operates between Santa Barbara and San Diego. 

Commercial rail activity is primarily comprised of automobiles and lumber. Historically, soda 

ash has also been shipped by rail, but this activity was recently moved to the Port of Long Beach. 

2.1.4 Airports

Tijuana

The City of Tijuana is served by the Abelardo L. Rodriguez International Airport, located in 

Mesa de Otay and adjacent to the international border in Otay Mesa. It is the busiest airport in 

northwestern Mexico with six airlines offering national flights throughout Mexico and 125 daily 

flights, including daily service to Los Angeles, CA and Las Vegas, NV.
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San Diego

The Port of San Diego operates the San Diego International Airport-Lindbergh Field providing 

international and commercial air service for the region. Lindbergh Field hosts 20 passenger 

airlines and 17 air freight carriers. In 2009, the airport had a total of 199,209 operations. Of 

these, 143,220 were air carriers, 41,679 were air commuters, 12,984 were civil and 1,326

military.

Source: FAA 2009

The City of San Diego operates two general aviation airports, Brown Field one mile north of the 

U.S.-Mexico border, and Montgomery Field located in the Kearny Mesa area of the city.

Brown Field airport is a port of entry into the United States for private aircraft coming from 

Mexico into California. Brown Field is also heavily used by military and law enforcement 

agencies. The control tower operates daily from 8 a.m. to 8 p.m. 

2.1.5 Maritime Ports

Tijuana

Having no seaport of its own, the City of Tijuana is served by the Port of San Diego, the Port of 

San Pedro in Los Angeles, and the Port of Ensenada. Import-export shipments are scheduled 

weekly to Yokohama and Kobe, Japan; Hong Kong, China; Kaohsiung, Taiwan; and South 

Korea. Transfer shipments are available to Singapore and Pennang. South American countries 

such as Panama, Guatemala and Chile can also be reached through the Port of Ensenada.

San Diego

San Diego Bay is an uncongested harbor located about 96 nautical miles southeast of Los 

Angeles and just north of the U.S./Mexico border. It is only a few miles from Tijuana, and is 135 

miles from Mexicali. 

The Port operates two marine cargo facilities, the Tenth Avenue Marine Terminal and the 

National City Marine Terminal. Also, the Port owns the B Street Cruise Ship Terminal.

The cargo terminals have on-dock rail facilities for rapid transfer of cargo to rail and are minutes 

from Interstate 5, 8 and 15 for truck transportation. Terminal gates are operated 24 hours a day. 

The terminals are located 15 miles from the border crossing between the United States and 

Mexico.

The Tenth Avenue Marine Terminal is a 96-acre, multi-purpose facility offering modern 

dockside cool/frozen storage, break bulk, dry/liquid bulk, small-scale container operations and 

warehousing services. The principal inbound cargoes are refrigerated commodities, fertilizer, 

cement, break-bulk commodities, and forest products. The primary export cargoes include 

refrigerated cargo, break bulk and bulk commodities.
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IMC Chemicals, Inc. (IMC) operates a state-of-the-art bulk loader at this terminal. The loader, 

rated as one of the worlds most efficient, at 2,000 tons per hour, is used to export soda ash, 

sodium sulfate, borax, pyroborates, bicarbonate of soda and other bulk commodities.

The National City Marine Terminal is a 125-acre complex and a primary port of entry for Honda, 

Acura, Volkswagen, Isuzu, Mitsubishi Fuso, and Hino motor vehicles. The terminal is capable 

of handling well over 300,000 vehicles per year.

The B Street Cruise Ship Terminal is located on B street Pier, between the foot of Broadway and 

A Street in downtown San Diego. The facility is equipped to handle embarkation and 

debarkation of passengers and baggage with a 35,000 sq. ft. passenger reception and baggage 

handling area and a rated capacity of 3,419 persons.

2.2 Water and Sewage Infrastructure

2.2.1 Water

Tijuana

Tijuana's potable water and sewage services are operated by the State Commission for Public 

Services for Tijuana (Comisión Estatal de Servicios Públicos de Tijuana, CESPT). Tijuana is 

supplied with water from the Rodríguez Reservoir, with water transported from the Colorado 

River by an aqueduct, and by wells in La Misión located south of Tijuana on the coast. In 

addition, a small, but critical portion of Tijuana's water is supplied by the wells in the Río 

Alamar and Río Tijuana. Efforts are underway to protect these sources and maximize 

groundwater recharge. Water from the Rodríguez Reservoir and the Colorado aqueduct is treated 

at the filtration plant at El Florido. The water is distributed throughout Tijuana via two main 

systems: (1) the Mesa de Otay tank, and (2) the Aguaje de la Tuna tank. Water distributed 

through the system of mains and supply lines reaches approximately 85% of Tijuana's 

population. The remainder is serviced through deliveries by tank trucks (pipas) at a cost that is 

two to three times that of piped-in water. 

San Diego

San Diego is located in the semi-arid desert region of the southwestern United States where 

rainfall can vary from nothing one year to plentiful the next. During a normal year about 10-20 

percent of the City’s water supply is made up of local rainfall and is captured in reservoirs. The 

remaining 80-90 percent is imported via the Metropolitan Water District of Southern California 

(MWD) and the San Diego County Water District Authority (CWA) from two separate sources: 

the Colorado River Aqueduct (CRA) and the State Water Project (SWP).

The Metropolitan Water District built the Colorado River Aqueduct to convey water from the 

Colorado River. The aqueduct is more than 242 miles long, beginning at Lake Havasu on the 

Arizona/California border and ending at Lake Mathews in Riverside County. The aqueduct has 

the capacity to deliver up to 1.3 million acre-feet (MAF) each year. 
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San Diego also receives water that originates in Northern California from the State Water 

Project. This water is captured in reservoirs north of Sacramento and released through natural 

rivers and streams into the Sacramento-San Joaquin River Delta (Delta). The 444-mile-long 

California aqueduct carries the water from south of the Delta to southern California.

The MWD blends Colorado and State Project water for San Diego to achieve the highest quality 

for treatment and taste. The water is then transferred to the San Diego treatment plants at 

Miramar, Alvarado and Otay reservoirs, via pipelines operated by CWA.

The Miramar Water Treatment Plant is the sole provider of drinking water to an estimated 

500,000 customers in the northern section of the City of San Diego. The plant is located in the 

Scripps Miramar Ranch community on the shore of Miramar Lake. Currently the plant produces 

140 million gallons of water a day (mgd). 

The Alvarado Water Treatment Plant is located adjacent to Lake Murray near the City's border 

with La Mesa. Currently the plant processes 120 million gallons of water a day, and potable 

water demand, at times, exceeds available capacity.

The Otay Water Treatment Plant provides up to 34 million gallons per day of potable water to 

customers primarily in the southern reaches of the City. The treatment plant obtains its water 

from the Morena, Barrett and Lower Otay Reservoirs.

2.2.2 Sewage

Tijuana

The downtown areas of Mesa de Otay and Zona Centro are served by a system of collectors that 

transports sewage by gravity from the hills and mesas to main collectors in the Tijuana River 

Valley. From there, the sewage is transported to Pump Station 1, located at the low spot in 

Tijuana's collector system, which is adjacent to the International Wastewater Treatment Plant. 

There is also an interceptor located in the Tijuana River channel that diverts renegade sewage to 

the pump station and collector system. Most of the Zona Centro has sewage service, but 

coverage on Mesa de Otay is incomplete, particularly in the growing squatter settlements in the 

eastern portion of this area. From Pump Station 1, the sewage is pumped up over a series of hills 

to the ridge above Playas de Tijuana where it enters an open canal and is transported some 3.1 

miles (5 kilometers) south to the treatment plant at San Antonio de los Buenos. Another pump 

station lifts sewage from the area of Playas de Tijuana adjacent to the ocean to the conveyance 

canal to San Antonio de los Buenos. 

San Diego

In the City of San Diego, the wastewater is collected from residents and businesses in the 

Metropolitan Sewerage system and it is conveyed through pipelines to the Point Loma 

Wastewater Treatment Plant and the North City Water Reclamation Plant. 
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The Point Loma Wastewater Treatment Plant (PLWTP) treats up to 190 million gallons of 

wastewater per day from a 450 square mile area. The PLWTP is energy self-sufficient, using the 

methane produced at the plant during the wastewater treatment process to generate electricity at 

the plant’s gas utilization facility.

The South Bay International Wastewater Treatment Plant (SBIWTP) is a 25 million gallon per 

day advanced primary treatment plant located in San Diego County, about 2 miles west of the 

San Ysidro Port of Entry. The physical-chemical plant treats sewage originating in Tijuana, 

Mexico and discharges it to the Pacific Ocean through the South Bay Ocean Outfall, a four and 

one-half mile long, 11 foot diameter pipe completed in January 1999.

The new South Bay Water Reclamation Plant is currently in a test mode and will provide local 

wastewater treatment services and reclaimed water. The plant has a wastewater treatment 

capacity of up to 15 million gallons per day. It is located at the intersection of Dairy Mart and 

Monument Roads in the Tijuana River Valley. However, it is expected to process seven million 

gallons per day. 

The North City Water Reclamation Plant (NCWRP) can treat up to 30 million gallons of 

wastewater per day generated by northern San Diego communities. Wastewater entering the 

plant undergoes a series of treatment and disinfection steps, using the latest technology, to 

supplement the water supply of the region. Reclaimed water is distributed throughout the 

northern region of San Diego via an extensive pipeline system. 

2.2.3 Electricity/Natural Gas

Tijuana

Electricity for the city of Tijuana is generated by two thermoelectric plants: one located in 

Rosarito and the other in Mexicali (Cerro Prieto), both of which are operated by the Federal 

Electrical Commission (CFE). Total combined electric energy supply is over 2,000 MW. 

Tijuana's distribution system includes four high voltage stations and 27 substations. 

A 30-inch (76.2 cm), 23-mile (38 km) long natural gas pipeline has been built to feed the 

Presidente Juarez Thermoelectric power plant in Rosarito. The Rosarito pipeline has a capacity 

of transporting 500 mcfd (million cubic feet per day). The pipeline is operated by Transportadora 

de Gas Natural (TGN) in a joint venture between Sempra Energy and Proxima Gas, a consortium 

of Mexicali businesses.

A second pipeline, Gasoducto Baja Norte brings natural gas from the State of Arizona, with an 

additional 500 mcfd of capacity. The Baja Norte pipeline crosses the southeast border of 

California and the State of Baja California to connect with the existing Rosarito pipeline. The 

Baja Norte pipeline is 145-mile (242 km) long and 30-inch (76.2 cm) wide. The pipeline serves 

new and existing power plants and industrial customers in northern Baja California and Southern 

California. It is also a joint venture between Sempra Energy and Proxima Gas. 
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San Diego

Electricity in San Diego is supplied by San Diego Gas & Electric (SDG&E), which is a regulated 

public utility that provides service to 3 million consumers through 1.3 million electric meters and 

775,000 natural gas meters in San Diego and Southern Orange counties. The company’s service 

area spans 4,100 square miles, covering two counties and 25 cities. 

3.0 LAWS AND REGULATIONS 

3.1 Authority

This plan was developed in accordance with the following federal, state, and local statutes and 

agreements for both countries.

3.1.1 Laws and Statutes

3.1.1.1 Laws and Statutes in the United States

Comprehensive Environmental Response, Compensation, and Liability Act (CERCLA) of 1980, 

42 U.S.C. § 9601 et seq. Amended October 17, 1986

Emergency Planning and Community Right-to-Know Act (EPCRA) of 1986, Title III of 

Superfund Amendments and Reauthorization Act (SARA) of 1986, 42 U.S.C. § 11001 et seq.

Amended April 21, 2000

Clean Water Act of 1972, 33 U.S.C. § 1251 et seq. Amended 1987.

California Health and Safety Code, Division 20, Chapter 6.95, Hazardous Materials Release 

Response Plans and Inventory.

California Vehicle Code, Division 2, Chapter 2, Article 4, Highway Spill Containment and 

Abatement of Hazardous Substances of 1981.

3.1.1.2 Laws and Statutes in Mexico

The General Law of Ecological Balance and Environmental Protection (Published January 28, 

1988 and amended on June 4, 2010).

Environmental Protection Law for the State of Baja California (Published November 30, 2001). 

The General Law of Civil Protection (Published May, 2000). Amended April 24, 2006.

Civil Protection Law for the State of Baja California (Published January 16, 1998).

Amended November 14, 2003
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3.1.2 Regulations

3.1.2.1 Regulations in the United States

40 Code of Federal Regulations, Part 300, National Oil and Hazardous Substances Pollution 

Contingency Plan (2000). Amended may 16, 2011

29 Code of Federal Regulations, Part 1910.120, Hazardous Waste Operations and Emergency 

Response (2000). Amended April 3, 2006

29 Code of Federal Regulations, Part 1910.38, Employee Emergency Plans and Fire Prevention 

Plans (2000). Amended November 7, 2002

California Code of Regulations, Title 8, Section 5192, Hazardous Waste Operations and 

Emergency Response. Amended January 1, 2001.

California Code of Regulations, Title 19, Division 2, Chapter 4.5, California Accidental Release 

Prevention (CalARP)

3.1.2.2 Regulations in Mexico

Bylaw of the General Law of Ecological Balance and Environmental Protection concerning 

Hazardous Waste (Published November 25, 1988). Amended January 7, 2000

Bylaw for the Transport of Hazardous Materials and Hazardous Waste by Land (Published 

April 7, 1993).

Federal Regulation for Safety, Hygiene, and Environment in the Workplace (Published 

January 21, 1997).

Bylaw of the Law of Ecological Balance and Environmental Protection for the State of Baja 

California concerning Prevention and Control of Contamination of Water, Soil, and the 

Atmosphere (Published December 10, 1993).

Bylaw of the Prevention and Control of Fires and Disasters for Public Safety in the Municipality 

of Tijuana, Baja California (Published March 24, 2000).

Bylaw of Environmental Protection for the Municipality of Tijuana, Baja California (May 11, 

2001).

3.1.3 Binational Agreements

Agreement Between the United States of America and the United Mexican States on 

Cooperation for the Protection and Improvement of the Environment in the Border Area (La Paz 

Agreement) (August 14, 1983).

Annex II to the Agreement (July 18, 1985, revised June 1999) is the foundation for the 

development of the Joint Contingency Plan.
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3.2 Other Applicable Contingency Plans

Sections of the agreements and plans described below were adapted for use in various 

components of this plan.

3.2.1 Binational Contingency Plans

The United States-Mexico Joint Contingency Plan (JCP) for Preparedness for and Response to 

Environmental Emergencies Caused by Releases, Spills, Fires or Explosions of Hazardous 

Substances in the Inland Border Area (June 4, 1999).

The MEXUS PLAN (February 2000) is the Joint Contingency Plan between the United Mexican 

States and the United States of America regarding pollution of the marine environment by 

discharges of hydrocarbons or other hazardous substances. It provides standard operational 

procedures in case of pollution incidents that may represent a threat to the coastal waters or the 

marine environment of the border zone of both countries.

The MEXUS PLAN has a Geographic Annex, the MEXUSPAC, which defines the applicable 

regional coordination for the coastal waters of the Pacific Ocean of both countries. The 

Geographic Annex was signed on February 26, 2003 by the Secretary of the Navy of Mexico and 

the United States Coast Guard. 

3.2.2 Mexico Contingency Plans 

3.2.2.1 Local and Regional Plans and Mutual Aid Agreements

The Municipal Contingency Plan for the City of Tijuana (April 2000) provides guidelines to 

ensure an effective response to emergency situations caused by natural or man-made disasters. 

The plan addresses duties of government agencies and organizations, operating procedures, and 

coordination of resources during an emergency response. The Civil Protection Administration 

has developed the Annexes of the plan for Geological Risks and Hydro-meteorological Risks and 

is currently developing the plan for chemical risks. 

The Municipal Civil Protection Agency has developed the 2000 Risk Atlas for the Municipality 

of Tijuana, B.C., version 1.0, which is a tool for emergency response planning actions. The Risk 

Atlas contains the geological, hydro-meteorological, socio-organizational, chemical and sanitary 

risk evaluation. 

3.2.2.2 State of Baja California Plans

The Contingency Plan for the State of Baja California (July, 1, 2008) was developed by the Civil 

Protection Agency to properly plan, document, train, identify risks, mitigate, and respond to 

incidents that require the state of Baja California to act in the most efficient and appropriate 

manner and method.
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3.2.2.3 Federal Plans 

Technical Guide for Developing Municipal Contingency Plans (Protección Civil): (Revised 

1998). This guidebook was published by the General Directorate of Civil Protection of the 

Mexican Federal Government in 1993. It provides guidelines for implementing local emergency 

plans in Mexico, in response to natural or man-made disasters. These plans are based on the 

identification and evaluation of local hazards, availability of human and material resources, and 

preparation and capabilities of the local community. Hazards are classified as: geological, 

hydrological/ meteorological, chemical, sanitary, or socio-organizational. Contingency plans are 

not yet mandatory by law in Mexico; however, Civil Protection strongly recommends each state 

and municipality have one.

National Civil Protection System. The Department of the Interior of the Mexican Federal 

Government approved on May 6, 1986 the basis to establish the National Civil Protection 

System, which has as a main objective to protect persons and the community in case of a disaster 

caused by natural or human agents. 

In order to fulfill the objectives of the National Civil Protection System, there is the National 

Civil Protection Program that describes the objectives, policies, strategies, action lines and goals. 

The National Program is currently in force for the 2001-2006 periods. 

DN III-E Plan for Community Assistance. This plan, established by the Secretariat of National 

Defense, is an active military instrument that establishes the role of the Mexican Army and Air 

Force to carry out support activities to the community affected by any type of disaster.

Manual of Emergency Attention for Hydroecological Emergencies Related to Continental 

National Waters (2000). Civil Protection implements this plan in the event of a flood, hurricane 

or other severe storm. This plan is updated annually.

3.2.3 United States Contingency Plans

3.2.3.1 Local and Regional Plans and Mutual Aid Agreements

The San Diego County Operational Area Emergency Plan (March 2000) describes a 

comprehensive emergency management system which provides for a planned response to 

disaster situations associated with natural disasters, technological incidents, and nuclear-related 

incidents. It delineates operational concepts relating to various emergency situations, identifies 

components of the Emergency Management Organization, and describes the overall 

responsibilities for protecting life and property and assuring the overall well-being of the 

population. 

In addition, there are four stand-alone emergency plans: 1) San Diego County Nuclear Power 

Station Emergency Response Plan; 2) San Diego County Operational Area Oil Spill Contingency 

Element of the Area Hazardous Materials Plan; 3) San Diego County Operational Area 

Emergency Water Contingencies Plan; and 4) Unified San Diego County Emergency Services 

Organization Operational Area Energy Shortage Response Plan. Amended April 2007.
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3.2.3.2 State of California Plans

The State of California Emergency Plan (May 1998) establishes a system for coordinating all 

phases of an emergency in California. The plan provides a description of the California 

Emergency Organization and of mutual aid to be used during emergencies to ensure effective 

coordination of resources. It describes interagency and intergovernmental shared responsibilities 

and support capabilities. The plan includes general policies to guide emergency management 

activities. Amended June 23, 2009.

The State of California Hazardous Materials Incident Contingency Plan (HMICP) was originally 

published in November of 1982, and later revised and published in January of 1991. The 

HMICP has been modified since the last publication. The latest draft was published on May 30, 

1999. 

The HMICP provides an integrated and effective procedure to respond to the occurrence of toxic 

disasters within the state. The Plan was prepared and edited by the Governor’s Office of 

Emergency Services.

3.2.3.3 Federal Plans

National Contingency Plan (revised 1997). The National Response Team (NRT) developed the 

National Contingency Plan (NCP) for responding to releases or spills involving oil or hazardous 

materials throughout the United States.

U.S. EPA Region IX - Mainland Regional Contingency Plan (revised May 10, 2006). The U.S. 

Environmental Protection Agency (U.S. EPA) Region IX Regional Response Team (RRT) has 

developed a Contingency Plan, which outlines procedures in the event of a release or spill 

occurring in the States of Arizona, California, or Nevada.
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4.0 HAZARDS IDENTIFICATION

This section identifies the hazards associated with hazardous materials during use, handling and 

storage on site, during transportation, and at the Otay Mesa Port of entry within a two-mile 

radius from the international border based on the geographic scope defined for binational 

emergency response for hazardous contingencies. 

4.1 Businesses Using, Handling or Storing Hazardous Materials (Fixed Facilities) 

This section presents the hazards posed by fixed facilities, which use, handle or store hazardous 

materials in the County of San Diego, California and the City of Tijuana, Baja California. 

For the purpose of the plan, this section includes only general information about the hazardous 

materials handled by the facilities on both sides of the international border. As a separate 

document, a detailed inventory will be generated, updated, and exchanged every six months 

between the Tijuana Fire Department and the San Diego County Department of Environmental 

Health, Hazardous Materials Division. This information will be provided on compact disk in a 

Microsoft Access program or shared via a secure web-based interface. It will include location 

specific information, types of chemicals, and descriptions of the hazardous materials used or 

stored on site, as well as their quantities.

4.1.1 Hazard Analysis

Tijuana

The City of Tijuana comprises nine sectors, known as delegaciones: Playas de Tijuana, Centro, 

San Antonio de Los Buenos, Otay Mesa, La Mesa, Sánchez Taboada, Centenario, Cerro 

Colorado and La Presa. 

Based on information obtained from the Risk Atlas for the Municipality of Tijuana dated March 

2000, version 1.0, provided by Municipal Civil Protection, the types of high-risk facilities 

located at the border are: hazardous materials and hazardous waste transportation, airport 

services, storage and distribution of liquid propane (LP) gas, food product processing, and 

fabricated metal products industries. In this section, the hazards analysis focuses on high risk 

industries within the scope of the plan.

The determination of activities considered high risk is based on the properties of the hazardous 

substances and the reporting amounts. The amount reported is the minimum amount of 

hazardous substance in production, processing, transportation, storage, use or final disposal, or 

their sum, available in a given facility or means of transportation, that when released would have 

a negative impact on the environment, the population or property. 

The General Law of Ecological Balance and Environmental Protection considers the regulation 

of high-risk activities based on two published listings:
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1) The first listing of high-risk activities corresponds to facilities that handle toxic 

substances in volumes equal to, or higher than the reporting amounts published in the 

Federal Gazette on March 28, 1990.

2) The second listing of high risk activities corresponds to facilities that manage 

flammable and explosive substances in volumes that are equal to, or higher than the 

reporting amounts published in the Federal Gazette on May 4, 1992.

Table 3 shows the types of businesses located in Tijuana within two miles of the 

U.S.-Mexico border that fall within these categories, and the number of businesses 

handling chemicals in each category. 

Table 3

Type of Facilities # of 

Facilities Type of Hazards Quantities

Storage/distribution of LPG 2 Fire

Explosion

50,000 kg

Food product processing 16 Fire

Waste

Minimum amount 

1 kg

Ice manufacturing and sales 2 Fire

Pressure release of 

ammonia

Minimum amount

10 kg or more

Slaughter and temporary storage 

of bovine cattle

1 Waste 1 kg or more

Buy-sale of welding fuels 1 Fire

Waste

Minimum amount

1 kg or more

Airport services 1 Waste 1 kg or more

Sale of chemical products 5 Explosion

Spill

Waste

Minimum amount

Minimum amount

1 kg or more

Electroplating 1 Fire

Waste

Minimum amount

1 kg or more

Industrial gas distribution 1 Explosion 

Fire 

1-100 kg

1-100 kg

Hazardous waste transportation 3 Spill 0.5 lt or more

Manufacturing of latex products 1 Fire

Waste

Minimum amount

1 kg or more

Metal polishing 1 Waste 1 kg or more

Hazardous waste recycling 3 Spill

Waste

Minimum amount

1 kg or more

Melting of scrap 19 Fire

Waste

Minimum amount

1 kg or more

Manufacturing of ophthalmic 

lenses 

1 Waste

Fire

1 kg or more

Minimum amount
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Others 58 Waste

Fire

1 kg or more

Minimum amount

 

 Source: The Risk Atlas for the Municipality of Tijuana, first and second listing of high-risk activities (LGEEPA), and

 Emergency Response Guidebook, 2008

San Diego

San Diego County comprises 18 cities and unincorporated areas. The cities are: Carlsbad, Chula 

Vista, Coronado, Del Mar, El Cajón, Encinitas, Escondido, Imperial Beach, La Mesa, Lemon 

Grove, National City, Oceanside, Poway, San Diego, San Marcos, Santee, Solana Beach, and 

Vista. 

Based on information provided by the San Diego County Department of Environmental Health, 

Hazardous Materials Division, regulated businesses operating within the two-mile radius include 

a variety of industrial and commercial activities, handling various hazardous materials. The zip 

codes used for border communities that are included in this analysis are: 92154; 92173; 91905; 

91906; 91917; 91932; 91934; 91963; and 91980.

Among the most prominent and relevant activities in the border area are: auto wrecking/scrap 

yards; general auto repair; auto body repair; construction/painting contractors; resin 

manufacturers and users; machine shops/metal working activities; and retail gasoline stations. 

Some of this activity is to support the maquiladora industry.

In this section, the hazards analysis focuses on activities requiring a Hazardous Materials 

Business Plan. A brief description of the regulation is as follows:

Hazardous Materials Business Plan: According to the California Health and Safety Code, 

Division 20, Chapter 6.95, each business shall prepare a Business Plan if that business uses, 

handles, or stores a hazardous material or an extremely hazardous material in quantities greater 

than or equal to:

 500 pounds of a solid substance

 55 gallons of a liquid

 200 cubic feet of compressed gas

 A hazardous compressed gas in any amount

 Hazardous waste in any quantity (to meet the requirements for emergency contingency 

plans)

Table 4 shows the types of inspections conducted in San Diego, located within two miles of the 

U.S.-Mexico border that fall within these categories and the number of businesses handling 

chemicals in each category for 2009. 

\

Table 4
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Type of Facility Quantity

core work inspections 377

inspections by DTSC as the CUPA in Imperial and 

Trinity Counties

210

Mexican Border truck stops 2084

complaint investigations closed 57

enforcement cases settled 70

total settlement dollars $1,988,170

financial assurance funds managed Approximately 

$1.9 billion

training classes provided resulting in more than 

350 CUPA inspectors, governmental officials, and 

industry personnel trained 

29

criminal cases initiated 258

criminal cases completed 192

Source: San Diego County Department of Environmental Health, Hazardous Materials Division. 

Annual CUPA report 2009.

* These facilities have submitted documentation to the County of San Diego, Department of 

 Environmental Health, to be under permit. Status pending.

Definition of Hazards: According to 40 CFR 370.2:

 Fire: Flammable liquids and solids, combustible liquids, pyrophorics and oxidizers.

 Reactive: Unstable reactive, organic peroxides, water reactive, radioactive.

 Pressure release: Explosives, compressed gases, blasting agents.

 Acute health (immediate): Highly toxic, toxic, irritants, sensitizers, corrosives, other

 hazardous chemicals with an adverse effect with short term exposure.

 Chronic health (delayed): Carcinogens, other hazardous chemicals with an adverse effect

 with long-term exposure.

4.1.2 Recycling Centers

In addition to the facilities described above that handle hazardous materials and are required to 

provide inventories to regulating authorities, there are other facilities in the plan area that pose 

hazmat risks. For example, there are recyclers in the plan area that collect various paper, plastics 

and organic materials from border industry in Mexico and store them on site. There are three

recycling centers within the Plan area on the U.S. side. They provide service to the Otay Mesa 

and Tijuana area. The types of the materials collected by these recyclers are paper, cardboard, 

wood waste, green waste, glass, metals and plastics. 

Mexican authorities will provide information for this section.

In addition to recycling centers, used tire pile sites are also potential hazards. Tire pile fires are 

very toxic and can have severe impacts on the environment and the nearby population. There are 

presently no active sites on the U.S. side of the border.
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Mexican authorities will provide information for this section.

4.2 Risks Associated with Transportation

This section identifies risks associated with hazardous materials during their transportation in 

Tijuana, Baja California and in the County/City of San Diego, California.

4.2.1 Roads

Tijuana

The transportation of hazardous materials and wastes through general roadways is regulated by 

the April 7, 1993 Hazardous Materials and Waste Land Transportation Regulation. This 

regulation addresses: labeling, container and packaging characteristics used to transport materials 

or wastes; characteristics and specifications for vehicles used to transport materials and wastes; 

safety conditions and inspection of transportation units; handling and packing of load; required 

documentation; and other specifics. 

Within the documentation required, the transporter of hazardous materials and wastes should 

have “Transportation Emergency Information,” which should be implemented in case of an 

incident. This information should state the actions to be taken according to the hazardous 

material or waste being transported. In addition, the driver and personnel involved in 

transporting hazardous materials or wastes should have specific training and corresponding 

updates. The training programs should be authorized by the Secretariat of the Environment and 

Natural Resources and by the Secretariat of Labor and Social Security. 

When hazardous materials and wastes are transported within Municipality of Tijuana city limits, 

the person contracting the transportation services, the transporter and the addressee, should 

coordinate to determine the route and transportation schedule that offers the best safety 

conditions, notifying the Municipal Ecology Office in writing. If there are no concerns, this 

agency will issue an authorization and will state that the driver of the unit will not make any 

stops that are not necessary to provide the service, and will avoid downtown areas, in favor of 

outlying streets. 

If the hazardous materials and/or wastes are transported outside the Municipality limits, the route 

and schedule should be submitted to the Secretariat of Communications and Transportation for 

its authorization.

San Diego

The primary source of information for this section is the document entitled “San Diego 

Hazardous Material Commodity Flow Study,” which was developed in 2001 by the U.S. 

Environmental Protection Agency, Region 9. 

The movement of hazardous materials through San Diego County (the City of San Diego in 

particular) is defined by traffic to and from points east (Arizona) and north (Los Angeles metro 
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area), local traffic from production sites or consumption in the region, and cross border traffic 

with Mexico.

In San Diego County, traffic moves north on I-5 and I-15 toward Los Angeles, north and south 

on I-805 within the City of San Diego, and east/west on I-8 toward Imperial County and Yuma, 

Arizona. No specific traffic counts are available that would indicate the number of trucks 

carrying hazardous materials on these roads.

During the six years from 2000-2010, 1,483 hazardous materials spills in San Diego County 

were reported to the National Response Center. More than half of these spills were 

transportation-related. Petroleum products (oil, jet fuel and gasoline) were the most common 

substances released. Spill history data consist of only of those spills that are reported, largely 

representing those parties who have complied with spill reporting requirements.

The cross border traffic with Mexico will be discussed under section 4.3 of the Plan.

4.2.2 Railroads

Tijuana : 

The transportation of hazardous materials and wastes by rail is also regulated by the April 7, 

1993 Hazardous Materials and Wastes Land Transportation Regulation. This regulation contains 

specific provisions such as: trains transporting hazardous materials and wastes should have on 

board and in a permanent manner a supervisor from the railroad company who can verify 

compliance with the regulations. In case of an accident, the railroad crew should implement the 

safety measures established in the “Transportation Emergency Information.” The railroad 

company should have training programs to ensure that crew assigned to the train service 

transporting hazardous materials and wastes have the necessary knowledge for their safe 

handling.

For the use of trains transporting hazardous materials and wastes, the railroad company should 

establish trunk lines, and should use the existing railroad routes to prevent traveling through 

urban areas. Also, trains should remain as little time as possible at stations and maintain a 

traveling speed not to exceed 15.5 miles/hr (25 km/hr) inside the yard.

Presently, the main hazardous material transported in the Municipality of Tijuana by rail is 

Liquefied Propane Gas (LP gas). This section will be developed by Mexican authorities.

San Diego 

Table 5 shows the number of railcars carrying hazardous materials for export in 1999. 

According to the data, in 1999 no hazardous materials were imported by rail in San Diego.

Table 5

Commodity Description 1999 Annual

Number of Railroad 
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Cars

Plastics in primary forms 225

Chemical materials and products 47

Petroleum products 16

Inorganic chemicals 15

Organic chemicals 13

Gas, Natural and manufactured 11

Dyeing, tanning and coloring materials 3

Residues containing metal and metal compounds 3

Cleaning products 1

Fertilizers 0

Chemical preparations 0

Crude minerals -

Total 334

 Source: San Diego Hazardous Materials Commodity Flow Study (2001)

4.2.3 Maritime Ports

Tijuana

The City of Tijuana has no seaport of its own. It is served by the Port of San Diego, the Port of 

San Pedro in Los Angeles, and the Port of Ensenada.

San Diego

There are presently no hazardous materials being shipped in or out of the Port of San Diego.

4.2.4 Other Means of Transport

Tijuana

There is a 23-mile (38-km), 30-inch (76.2 cm) natural gas pipeline in the City of Tijuana, Baja 

California, which crosses the city from the northeast to the southwest. It passes through Otay 

Mesa, La Presa, La Mesa, San Antonio de Los Buenos, and extends to the Municipality of 

Rosarito, Baja California. The control valves for the pipeline are located north of the Otay Mesa 

sector and southeast of the San Antonio de los Buenos sector. An environmental risk assessment 

and accident prevention program were developed for this activity, which were reviewed and 

approved by the Secretariat of the Environment and Natural Resources. 

Another important chemical substance to be considered is Liquefied Propane gas (LP Gas), 

which is transported via underground ducts. The area of the city that has this infrastructure is the 

downtown sector.

San Diego

Natural gas is transported through underground pipelines throughout San Diego County. 
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Transportadora de Gas Natural (TGN) built a 23-mile (38-km), 30-inch (76.2 cm) pipeline that 

began supplying natural gas from the United States-Mexico border near San Diego to the 

Presidente Juárez power plant in Rosarito, Baja California, in the summer of 2000. 

Gasoducto Baja Norte is a 145-mile (242 km) natural gas transportation pipeline that crosses 

Baja California, Mexico, connecting to the TGN pipeline near Tijuana. The 30-inch (76.2 cm) 

pipeline has a capacity of approximately 500 million cubic feet per day of natural gas and serves 

new and existing power plants and industrial customers in northern Baja California and Southern 

California. The pipeline began operating on September 1, 2002.

4.3 Ports of Entry

There are six ports of entry along the California-Baja California border, which are listed from 

west to east:

San Ysidro, California / Tijuana, Baja California

Otay Mesa, California / Tijuana, Baja California 

Tecate, California / Tecate, Baja California

Calexico, California / Mexicali, Baja California

Calexico East, California / Mexicali, Baja California

Andrade, California / Algodones, Baja California

Table 6 shows historical and projected commercial traffic volumes for the California ports of 

entry.

Table 6

California Border Ports of Entry - Northbound Commercial 

Loads

Border Ports of 

Entry 2000 2001 2010 % of Total Load for 2010

Otay Mesa 687,577 703,677 745,974 68.1

Tecate 61,707 63,279 65,325 6.1

Calexico 286,811 264,430 269,317 25.6

Andrade 1,578 1,727 1,972 0.2

Total 1,037,673 1,033,113 1,082,588 100.0

Source: U.S. Customs, Office of Public Affairs, 01/10/System of Border Stations along the U.S.-Mexico Border

The County of San Diego has three ports of entry for transporting (import/export) hazardous 

materials: Otay Mesa, Tecate and the Port of San Diego. 

The export of hazardous materials through Otay Mesa is greater than the import activity, based 

on the number of trucks. The majority of the border traffic at Otay Mesa is regional. More than 

80% of the merchandise is sent by truck. More than 85% of the exports originate in California 

and their destination is the state of Baja California. The exports are frequently raw material or 
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partially finished products destined to production plants in Tijuana. The finished products return 

to the United States as imports. There is less likelihood for finished products to be classified as 

hazardous materials than raw material used in production.

Exports can present a greater risk for San Diego than imports because materials that are going to 

be exported tend to remain longer in the region than imports. Imports cross the border and they 

immediately go to I-5 or I-805 or head east on Interstate I-8 to their final destination, in transit 

through San Diego. In comparison, exports frequently remain in San Diego at storage facilities 

or staging areas for consolidation or for payment of Custom duties. This waiting time in the 

region increases the risk of a local incident.

United States Customs electronically records all the merchandise coming into the country 

through the Harmonized Tariff System (HTS), assigning a 10-digit code to each material to be 

imported, including hazardous materials.

Table 7 shows a list of hazardous materials imported through the ports of entry at Otay Mesa and 

Tecate, based on the first two digits of the HTS code. The category within the first two digits is 

generic. As the hazardous material is described in more detail, the numeric code becomes larger. 

Table 7: Hazardous Materials imported by HTS Code

HTS 

Code HTS Description

26 Ores, slag and ashes

27 Mineral fuels, mineral oils and products of their distillation

28 Inorganic chemicals, compounds of precious metals, rare earth metals and radioactive elements 

29 Organic chemicals

31 Fertilizers 

32 Tanning or dyeing extracts; tannins and their derivatives; dyes, pigments and other coloring 

matter; paints and varnishes; inks. 

34 Soap, organic surface-active agents, washing preparations, lubricating preparations, artificial 

waxes, prepared waxes, polishing or scouring preparations, candles and similar articles, 

modeling pastes, dental waxes and dental preparations with a basis of plaster 

36 Explosives

37 Photographic and cinematographic goods 

38 Miscellaneous chemical products

 Source: San Diego Hazardous Material Commodity Flow Study (Harmonized Tariff Schedule of the United States, 

 (January 1, 2011)

The exporting of merchandise is classified based on the Standard International Trade 

Classification (SITC). This system uses from one to five digits. The fewer digits that are listed, 

the more generic the description.

Table 8 shows a list of hazardous materials exported through the Otay Mesa and Tecate ports of 

entry, based on the first two digits on the SITC code.

Table 8: Exported Hazardous Materials by SITC Code
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SITC 

Code SITC Description

27 Crude minerals (excluding coal and petroleum)

28 Ash and residues containing metals and metallic compounds 

32 Coal, coke and briquettes

33 Petroleum, petroleum products and related materials

34 Gas, natural and manufactured

51 Organic chemicals

52 Inorganic chemicals

53 Dyeing, tanning and coloring materials

55 Polishing and cleaning preparations

56 Fertilizers

57 Plastics in their primary forms

59 Chemical materials and products

88 Chemical preparations for photographic uses

 Source: San Diego Hazardous Material Commodity Flow Study (US Bureau of Census)

The Otay Mesa port of entry is the only port of entry in the plan area that facilitates the 

importation and exportation of hazardous materials as compared to the Tecate port of entry, 

which only allows the exportation of hazardous materials.

Importation of hazardous wastes and materials from Mexico through the Otay Mesa port of entry 

takes place three days a week. The imported materials are inspected by hazardous materials 

technicians of the Bureau of Customs and Border Protection and by a hazardous materials 

technician inspector, either from the Department Toxic Substances Control (DTSC) or from the 

Department of Environmental Health, Hazardous Materials Division, of the County of San 

Diego. 

Exportation of hazardous materials occurs through the Otay Mesa and Tecate ports of entry. 

There is not a set schedule for the exportation of these materials either by the United States 

Customs or the Mexican Customs Agency. The San Diego County Department of 

Environmental Health, Hazardous Materials Division inspects trucks to identify illegal 

exportation of hazardous wastes into Mexico. 

If an incident with hazardous materials or hazardous waste occurs on the north side of the ports 

of entry, Customs and Border Protection will notify the local fire department. The Hazardous 

Incident Response Team (HIRT) will be notified via normal San Diego Fire Dispatch 

procedures.

4.4 Sensitive Populations and Vulnerable Areas

As a part of a hazards analysis, the identification of sensitive populations and vulnerable areas is 

necessary. Available information is presented here.
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4.4.1 Sensitive Populations

Tijuana

According to informal procedures followed by the Tijuana Fire Department and Civil Protection 

of the Municipality of Tijuana, when a hazardous material incident occurs in a business or 

facility located near a school, hospital or any other sensitive population center, the Fire 

Department is the local agency responsible for responding to the emergency and making an 

assessment of the site. If the Fire Department determines that there is an imminent danger to the 

population near the incident, they will notify them to evacuate or shelter in place. If evacuation 

takes place, Civil Protection will come to the scene and make a second evaluation of the scene. 

If Civil Protection determines that a bigger area needs to be evacuated, they will begin the 

coordination and communication with the Police Department, Emergency Medical Services and 

other emergency response agencies. 

If the Fire Department determines that an evacuation is not necessary, they will perform response 

operations and Civil Protection will provide follow up coordination depending on the conditions 

and requirements of the incident.

Summarizing the key segments of sensitive populations, in the Municipality of Tijuana there are 

86 health service facilities including hospitals, clinics, and medical centers. Within the plan area 

there are 18 elementary public schools, 24 elementary private schools, 20 secondary public 

schools, and 19 secondary private schools.

Additionally, the City of Tijuana has 12 main population centers within the scope of the plan 

which are listed below:

1. Toreo de Playas 7. Hospital General 

2. Plaza Patria 8. Toreo de Tijuana

3. CECUT 9. Aeropuerto

4. Palacio Municipal 10. Central Camionera

5. Plaza del Zapato 11. Parque de la Amistad

6. Palacio del Estado 12. Parque Deportivo

Population Center Number 1 is not considered a vulnerable area because there are no high-risk 

industries in that area.

Population Centers 2-8 are considered sensitive or vulnerable because the area in which they are 

located (Zona Centro) has the underground infrastructure for the Liquefied Propane Gas (LP 

gas). Also, there are ten high-risk companies located in this area.

Population Center 9 is considered a sensitive and vulnerable area due to the jet fuel at the airport. 

Population Center 10 is considered a sensitive and vulnerable area because there are two highrisk facilities and an LP gas company nearby.

Population Center 11 is considered a sensitive and vulnerable area because the underground 

pipelines for the natural gas line are located near this area of downtown. 
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Population Center 12 is considered a sensitive and vulnerable area because two high-risk 

companies are located nearby. 

More detailed information regarding the Sensitive Populations and Vulnerable Areas is provided 

in Appendix A.

San Diego

There are schools, hospitals, churches and other facilities located within the plan area, which are 

considered to be sensitive populations when a hazardous materials incident occurs in a business 

or facility located near those population centers. 

According to California Health and Safety Code, Section 25507.10, emergency rescue personnel 

responding to the reported release or threatened release of an acutely hazardous material, or to 

any fire or explosion involving a hazardous material release, shall immediately advise the 

superintendent of the school district having jurisdiction, where the location of the release or 

threatened release is within one-half mile of a school.

In San Diego County there are 42 public school districts, including 24 elementary school districts 

that feed into six high school districts and 12 unified districts, where grades K-12 are contained 

within a single district. Within the plan area there is one public elementary school district and 

one public unified school district. Information about those school districts is as follows:

San Ysidro School District is located at 4350 Otay Mesa Road, San Ysidro, California. The 

Superintendent can be contacted at 619-428-4476, extension 3021. 

South Bay Union School District is located at 601 Elm Avenue, Imperial Beach, California. The 

Superintendent can be contacted at 619-628-1605. 

The South Bay Union School District has developed a district-wide safety plan to ensure the 

highest level of prevention, preparation and response in the event of a crisis or safety 

compromise occurring at any school in the district. The plan defines specific steps to be taken by 

school and district-level support personnel in the event of a natural or man-made disaster. School 

and District Level Crisis Response Teams have been formed.

To advise the hospitals of any release or threatened release of hazardous materials occurring 

within the operational area, the Multi-Casualty Annex to the Operational Area Emergency Plan 

describes a two-tiered system of medical disaster notification in the Operational Area. This 

system, “Alert” and “Activate,” allows hospitals, transporting agencies, and other components of 

the emergency medical system to prepare for multi-casualty incidents.

When a multi-casualty incident is suspected, but not confirmed, the affected agencies are notified 

of an Alert. At this point, designated hospitals and agencies consider notifying only their 

personnel and making other necessary preparations.

The on-scene Incident Commander or his/her designee decides whether to notify their dispatch 

center to Alert/Activate the Multi-Casualty Annex. Their dispatch center then contacts the 
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Sheriff’s Communication Center (SCC) and requests the Alert/Activate of the Annex. SCC then 

makes the necessary notifications. The first arriving ambulance at the scene will contact the 

Facilitating Base Hospitals and advise them of the incident and that the Multi-Casualty Annex 

Alert/Activate has been declared. 

4.4.2 Population Distribution

Tijuana

In the City of Tijuana, Baja California, the population distribution analysis is done by sectors or 

“delegations” as follows (Map 1): 

In the Playas de Tijuana sector, the land use designation is primarily residential. 

In the “Centro” sector, the land use designation is commercial, services and other facilities.

In the San Antonio de los Buenos sector, there are industrial and residential designations.

In the La Mesa sector, the designations are residential and industrial.

In the Otay Mesa sector, land use designations are industrial, residential and public facilities.

In La Presa sector, the designations are residential, industrial and public services.

San Diego

For the border region of San Diego County, the population distribution is based on the land use 

information provided by the San Diego County Department of Environmental Health (Map 2).

In the central region, the land use categories are predominately residential, commercial/office 

and public facilities/utilities. The industrial area is distributed throughout the City of Chula 

Vista and adjacent to the international border. This region encompasses the Community of San 

Ysidro.

In the western region, encompassing the City of Imperial Beach, the land use categories are 

predominately residential, parks and recreational areas, and vacant land. Included in this area is 

the Tijuana Estuary preserve. The industrial area is located on the east side of the southernmost 

part of San Diego Bay. On the west side of the Bay the land use category is primarily public 

facilities and utilities, including military installations.

In the eastern region, encompassing the Otay Mesa area, the land use categories are 

predominately agriculture and vacant land. Pockets of industry are distributed throughout the 

area. 

Many of these industrial facilities support the maquiladora industry in Baja California. This area 

also includes public facilities and utilities, including the Brown Field General Aviation

Airport, the Donovan State Correctional Facility, and landfills. Adjacent to the international

border are rural residential and commercial areas. 
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4.4.3 Sensitive Natural Resources Areas 

Tijuana

The Tijuana-San Diego area has the Cottonwood-Alamar binational creek in common. It 

originates in the United States with the name Cottonwood Creek and flows south into Mexico. 

The creeks flowing into it are Kitchen, La Posta, Morena, Hauser, Pine Valley, Corral Canyon, 

Wilson, Rattlesnake Canyon, McAlmond Canyon, Potrero, Bee Canyon, Campo-Tecate and 

Mine Canyon. 

Once Cottonwood Creek enters into Mexican territory, its name changes to Alamar Creek. The 

Alamar is currently showing great environmental deterioration from irregular settlements, waste 

discharges from industries, large deposits of waste and debris, stagnant and contaminated water, 

as well as arbitrary extraction of rocky materials. The Tijuana City Government is working on 

the Alamar Arroyo recovery project through the Municipal Planning Institute (IMPlan).

Another important hydrologic unit is the Tijuana River, which runs from south to northeast of 

Tijuana. The Alamar Creek joins the Tijuana River. It crosses the border and discharges into 

estuary and the Pacific Ocean in the United States territory. 

The Tijuana Estuary is considered a National Sanctuary because a variety of endangered species 

inhabit this area. Endangered plants and animals are threatened by the Tijuana River discharge, 

which sometimes contains high concentrations of coliform bacteria, sediment, traces of metals 

(copper, lead, zinc, chrome, nickel and cadmium), polychlorinated biphenyls (PCBs), and other 

urban, industrial and agricultural contaminants.

In case of a hazardous material incident, the plants and animals of the Tijuana Estuary would be 

threatened if the incident were to affect the Alamar Creek or the Tijuana River, which crosses the 

border and discharges into the estuary.

San Diego

One of the most important sensitive natural resources areas in Southern San Diego County is the 

Tijuana Estuary. The Tijuana Estuary is a small inter-tidal coastal estuary on the international 

border between California and Mexico. The estuary is primarily a shallow water habitat, though 

it is often termed an "intermittent estuary," as it is subjected to extreme changes in stream flow at 

different times of the year. Extended periods of drought leave parts of the estuary dry during 

some periods, while flooding inundates the same areas during others. For this reason, the Tijuana 

Estuary is considered to be a unique part of the National Estuarine Research Reserve System.

The Estuary encompasses a total of approximately 2,500 acres: approximately 1,660 upland 

acres, 120 non-tidal fresh marsh acres, 400 salt marsh acres, 250 tideland acres and 70 open 

water acres.

The Tijuana Estuary provides examples of most vegetation communities found in other southern 

California wetlands. Cord grass (Spartina foliosa) forms robust stands along tidal channels in the 

northern reaches of the estuary. Above the Spartina-dominated community are found several 
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succulents, including pickle weed and saltwort. At higher elevations these succulents grade into a 

cover of shore grass. At the highest elevations, pickle weed becomes codominant with shore 

grass. The Reserve's marshes also are home to the endangered salt marsh bird's beak. This once 

abundant plant has been pushed to the brink of extinction by the pressures of marsh destruction 

in California.

The Reserve boasts more than 370 species of birds, of which about 320 are migratory. Birds at 

the Reserve include four federally listed endangered birds: the light-footed clapper rail, the 

California least tern, the least Bell's vireo and the California brown pelican. Peregrine falcons, 

bald eagles and golden eagles are all occasional visitors as well. The Tijuana River Estuary is 

located along the Pacific Flyway and is used for staging and wintering by a variety of waterfowl 

and shorebirds. Wintering waterfowl include pintail, cinnamon teal, American widgeon, surf 

scoter and ruddy duck. 

Shorebirds account for a large portion of the migratory population. While 20 species occur 

regularly along the sand flats and mudflats of the estuary, four species: the willet, dowitcher, 

western sandpiper and marbled godwit account for a large part of the bird population throughout 

the year. Abundance and species composition fluctuate seasonally among habitats with the intertidal sand and mudflats supporting both the largest numbers of individuals and species. 

The Estuary supports a small mammal population typical of fields and lowland habitats. Rodents, 

including mice, the California ground squirrel, and rabbits are the most common. At least 29 

species of fish reside in the small tidal creeks and channels of the estuary. Species in their 

juvenile stages that are found in the Reserve's creeks and streams have included longjaw, 

mudsucker, northern anchovy and several species of gobies. Adult fish residing here include 

topsmelt, California killifish, staghorn sculpin and longjaw mudsucker. 

Crabs are perhaps the most conspicuous invertebrates in Southern California coastal marshes and 

the Tijuana River Estuary. Rove beetles burrow in the mud and sandflats. A large population of 

coastal tiger beetles also lives in these areas. The largest population of the wandering skipper in 

the U.S. resides in the Tijuana Estuary. Several species of mosquito can be found in the Reserve 

as well. The globose dune beetle and the Belkin's dune fly, both considered threatened, are also 

found on the Reserve site.

4.4.4 Tecate, California

Tecate, California is a small town with a population of 207 people. It is an unincorporated area 

of San Diego County. According to San Diego County land use information, the land use 

distribution in Tecate is predominantly vacant and undeveloped land (Map 5). The community is 

predominantly agricultural. In the eastern region, the land use categories are industrial, 

residential, and commercial. The few businesses located in Tecate are primarily commercial 

with retail stores and warehousing to support cross-border commerce. 

4.4.5 Tecate, Baja California

Tecate, Baja California is a community of approximately 64,764 people, located 30 miles east of 

Tijuana and 86 miles west of Mexicali. Tecate rests on the U.S. border, 45 miles from San
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Diego and port facilities. The city is primarily a tourist destination with a very agreeable climate 

and only occasional rain. The community is predominantly agricultural (Map 6).

The City of Tecate has three industrial parks. The principal types of industry located in Tecate 

are: polishing and electroplating of metal parts, copper plating, electronic components assembly, 

wooden furniture and frames, stained glass, automotive alternators, and manufacturing of latex 

products. The Tecate brewery is a major employer in Tecate representing a significant segment 

of Tecate industrial base.

The international border crossing at Tecate has both vehicular and commercial gates. With the 

exception of Andrade, the Tecate border is less traveled than other ports of entry between 

California and Baja California. 

4.4.6 Drinking Water Supplies and Wastewater Treatment

As a part of a hazard analysis, the identification of drinking water supplies and wastewater 

treatment facilities is necessary. Available information is presented here.

Tijuana

The Tijuana River is the main body of water in the city. Its waters originate in the Sierra de 

Juarez about 8.7 miles (14 kilometers) to the south of the city. The Abelardo L. Rodriguez dam, 

one of the main water supply sources for the city, captures the river flow. The Tijuana River 

flows southwest until it meets the Alamar Creek where it enters the United States.

There are several arroyos that converge into the Alamar Creek, among which are the Nido de las 

Aguilas, Magisterial, Murúa, Industrial, La Loma and Pestejé arroyos. These arroyos are in 

areas close or adjacent to industries located in the Otay Mesa Delegation, within the two mile 

(3.2-kilometer) area included in the plan.

Among the creeks that flow into the Tijuana River are the Jonson, Jalisco arroyo and the “K” 

arroyo, which are in areas close or adjacent to industries located in Downtown Tijuana, within 

the two mile (3.2-kilometer) area included in the plan.

In the case of a hazardous materials release, if the release flows to the arroyos that converge to 

the Alamar Creek or to the arroyos that flow into the Tijuana River, the contaminants could be 

transported by the Tijuana River to the Tijuana Estuary and the Pacific Ocean.

If the release enters the storm water sewer system, the contaminants would be transported 

directly to the beaches and to the Pacific Ocean without receiving any type of treatment, because 

the storm water sewer system is not connected to the city’s wastewater treatment system.

If the contaminated water flows into an area where the soil does not have an insulating protective 

layer, the water will filter into the soil and subsoil and could contaminate the water tables or 

basins in the area where the incident originated.
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County/City of San Diego, California 

There are a total of 11 hydrologic units in the San Diego Hydrologic Region. From north to south 

they are San Juan Creek, Santa Margarita, San Luis Rey, Carlsbad, San Dieguito, San Diego, 

Peñasquitos, Pueblo San Diego, Sweetwater, Otay, and Tijuana. For purposes of the plan, the 

focus is the Otay and Tijuana river basins because these two basins are located in the south of the 

San Diego Hydrologic Region, within the border area.

The Tijuana river basin covers San Diego County and the Municipalities of Tijuana, Rosarito 

and Tecate in Baja California. The basin has an approximate area of 1,750 square miles (4,530 

square kilometers). Only 30% of the basin is in California, the remaining 70% is in Baja 

California.

The San Diego Water Department supplies potable water to the city from three treatment plants: 

the Miramar Filtration Plant located to the north of the city, the Alvarado Filtration Plant located 

in the central part and the Otay Filtration Plant located to the south of the city.

The Otay Filtration Plant receives water from the Morena, Barret and Lower Otay reservoirs. 

The Otay Reservoir is considered one of the three main bodies of water in the Otay river basin. 

The primary land use designations in the Otay river basin are 67% open space and 20% 

urban/residential. The basin consists mainly of unincorporated areas, but it also includes 

portions of Chula Vista, Imperial Beach, Coronado, National City and San Diego. Discharges 

reaching the Otay basin are urban, agricultural, septic and marine in nature.

The Tijuana river basin has primarily three bodies of water: Tijuana River, Cottonwood Arroyo 

and the Tijuana Estuary. Only 30% of the basin is located in California. The river discharges 

into the Tijuana Estuary and the Pacific Ocean. The cities of Imperial Beach and San Diego on 

the United States side of the border have jurisdiction within the basin. The cities of Tijuana and 

Tecate on the Mexican border are the most important urban centers located in the basin.

The Tijuana river basin is classified by the State Water Resources Control Board as Category I 

(impaired), due to the large variety of water quality issues. These problems are the result of 

mobile agricultural sources in the United States territory and a large variety of point and mobile 

sources in Mexican territory. Discharges reaching the Tijuana river basin are urban, spills from 

the sewage system, industrial spills, and agricultural and septic spills.

4.5 Counter terrorism

The events of September 11, 2001 have altered the way that people view terrorism. Terrorist 

acts constitute a global threat, and can happen in any community at any time. In order to 

safeguard our freedoms, while guarding against terrorist activity, a cooperative international 

strategy must be developed. The need for such collaboration is nowhere more important than 

along the U.S./Mexico border.

The substantial flow of people and goods across the U.S./Mexico border is vital to the economies 

of both nations. However, such movement along the border area can also serve as a conduit for 

terrorist acts. Nuclear, chemical and biological weapons of mass destruction pose a real threat to 

which U.S. and Mexican authorities must be prepared to respond. 
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The first line of defense in any terrorist attack is the first responder community – local law 

enforcement, firefighters, emergency medical professionals, public health, and public workers. 

Properly trained and equipped first responders have the greatest potential to save lives and limit 

casualties after a terrorist attack. Currently, capabilities for responding to a terrorist attack vary 

widely across the U.S./Mexico border region. Strengthening the assets, training and 

communications capabilities of first responders along the border will contribute to the safety and 

well being of border communities. 

Cross border response and contingency plans are the cornerstone documents for cross border 

planning and response to terrorist acts. The planning process provides an opportunity for U.S. 

and Mexican agencies to assess capabilities and develop appropriate communication, 

cooperation and response protocols. 

In addition to improving and coordinating their response capabilities, border communities need 

to conduct terrorist vulnerability and risk assessments of ports of entry, public and private fixed 

facilities, highways and waterways to guide prevention and response efforts.

The development of counter-terrorism strategies requires the participation of additional federal 

and state law enforcement and health authorities. A list of the appropriate authorities is included 

in the supplemental directory of Hazardous Material Planning and Emergency Response 

Contacts.

4.5.1 U.S. Response

In the wake of the terrorist attacks, the new Department of Homeland Security was created to 

provide a unified homeland security structure that will improve protection against today’s threats 

and be flexible enough to help meet the unknown threats of the future. 

The mission of the new Department is to prevent terrorist attacks within the United States, 

reduce America’s vulnerability to terrorism, and minimize the damage and recover from attacks 

that may occur. 

The Department of Homeland Security has four main divisions:

 Border and Transportation Security

 Emergency Preparedness and Response

 Chemical, Biological, Radiological, and Nuclear Countermeasures

 Information Analysis and Infrastructure Protection

The Department of Homeland Security is responsible for securing the borders and transportation 

systems. The department manages who and what enters the United States, and works to prevent 

the entry of terrorists and the instruments of terrorism while simultaneously ensuring the speedy 

flow of legitimate traffic. 

The Department works with federal, state, and local public safety organizations to build a 

comprehensive national incident management system for response to terrorist threats involving 

weapons of mass destruction and natural disasters. It directs exercises and drills for federal, 
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state, and local chemical, biological, radiological, and nuclear response teams and plans. The 

existing federal government emergency response plans will be consolidated into one genuinely 

all-hazard plan. In time of an emergency, the Department will manage and coordinate federal 

entities supporting local and state emergency response efforts. 

4.5.2. San Diego County Response

San Diego County developed the Operational Area Emergency Plan in March 2000, which 

describes a comprehensive emergency management system. It defines responsibilities, 

establishes an emergency organization, defines lines of communication, and is designated to be 

part of the statewide Standardized Emergency Management System. The Operational Area 

Emergency Plan has fifteen Annexes. The Unified San Diego County Emergency Services 

Organization approved the sixteenth Annex (Annex P), which addresses terrorism in the San 

Diego County Operational Area. 

The San Diego County Board of Supervisors approved Annex P in September 2001. The 

purpose of this Annex is to establish a terrorism response system and prescribe responsibilities 

and actions required for the effective operation of the response to acts of terrorism. To see the 

full text of Annex P, visit the San Diego County Office of Emergency Services website at:

http://www.sdcounty.ca.gov/oes/emergency_management/protected/docs

4.5.3 Mexican Response

In light of the September 11 events in New York, and the subsequent emergency response 

preparations, the public is on alert for the possibility of mass terrorist actions, with the possibility 

of using biological and/or chemical agents, which would put the public at risk. Even though the 

risk of a terrorist attack in Mexico is very unlikely, public health and safety services should have 

a plan for Surveillance and Notification Systems, as well as contingency plans in case of major 

emergency situations. With this in mind, the State Department of Civil Protection for Baja 

California has prepared the basis for the Border Security Project, which was submitted and 

approved in May 2003. 

The objective of the Border Security project is to create a plan or system for binational 

coordination and cooperation, specifically designed to prevent, investigate or address terrorist 

acts, which would have to be approved by the heads of relevant federal agencies and by 

governors and municipal authorities in both countries.

The participating Mexican institutions are: The General Office of Civil Protection, State of Baja 

California Civil Protection Municipal Organizations, Municipal Fire Departments, Non 

Governmental Organizations (NGOs) and ISESALUD. Also participating with regard to 

security are: the National Immigration Institute (INM for its Spanish acronym), Secretariat of 

Treasury and Public Credit (SHCP for its Spanish acronym)/Customs, the Attorney General’s 

Office, Federal Preventive Police (PFP for its Spanish acronym), Investigation and National 

Security Center (CISEN for its Spanish acronym), Secretariat of Foreign Relations (SRE for its 

Spanish acronym)/Consulate, the State Attorney General (PGJE), and the Office of Municipal 

Public Safety (DSPM for its Spanish acronym). 
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The institutions participating in the United States are: INS, Border Patrol, U.S. Customs, Justice 

Department, FBI, U.S. Marshall, Attorney General’s Office, and local Police Departments. 

5.0 ENVIRONMENTAL EMERGENCIES RESPONSE

5.1 Local Emergency Response

Emergency Response within San Diego County

There are over 400 hazardous materials responses a year in the San Diego County Operational

Area. An average of six responses a year occurs within the border area. The HIRT Team is 

made up of California State Certified Hazardous Materials Technicians and Specialists. The 

HIRT is a Joint Team staffed by DEH and San Diego Fire-Rescue Department to investigate and 

mitigate chemically related emergencies or complaints. Emergency response activities include 

mitigation, containment and control actions as well as hazard identification, so as to evaluate the 

threat to the local populations and the environment.

The response capabilities of the DEH-HIRT and the San Diego Fire-Rescue Hazardous Incident 

Response Team are described in Appendix B.

Emergency Response within Tijuana, Baja California

In the Municipality of Tijuana there are 50 hazardous material emergency responses a year. The 

Tijuana Fire Department is the main response entity in the City of Tijuana. The Fire Department 

Hazardous Materials Division staffs the Hazardous Materials Response team with nine members 

to respond to all hazardous materials emergencies within the city. The team has received 280 

hours of hazardous material training. Also, the Hazardous Material Response team serves the 

Municipality of Tecate if assistance is requested. 

The response capabilities of the Tijuana Fire Department are described in Appendix B. A list of 

resources for the Tijuana Civil Protection Administration is also included. 

5.2 Declarations of Emergency 

County/City of San Diego, California 

According to the Emergency Management Annex to the San Diego County Operational 

Emergency Plan, there are three levels of declaration of emergency, which are described as 

follows:

1. Local Emergency Proclamation

In the event of a disaster or condition of extreme peril to persons and property within a 

jurisdiction, which is beyond the capability of local responders to manage, the Board of 

Supervisors assumes the role of initiating a Proclamation of Local Emergency for the entire 
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Operational Area. A hazardous materials incident is one of the events that can lead to a Local 

Emergency Proclamation.

2. State of Emergency

After or as part of the Proclamation of a Local Emergency, the Board or City Council may 

request that the Governor proclaim a State of Emergency. The Governor’s State of Emergency 

allows for the following:

- Mandatory mutual aid may be exercised

- The Governor may request the President to declare an Emergency or Major Disaster

- The Governor has the authority to commit State resources

3. Presidential Declaration

After or as part of a Proclamation of a State of Emergency, the Governor may request that the 

President declare an Emergency or Major Disaster. The Presidential Declaration allows for 

Federal disaster assistance and resources.

Tijuana, Baja California

The following is a description of the state of emergency process, which should be primarily 

declared by the Mayor. If the Mayor is not available to do so, the City Manager may declare a 

state of emergency, or if he is not available, the Civil Protection Director can do so. Each of 

them has this authority in their respective capacities as President, Executive Secretary and 

Technical Secretary of the Municipal Civil Protection Council.

State of Pre-alert: The state of pre-alert refers to an unusual situation, which arises due to the 

potential occurrence of destructive phenomena implying that there is a need for the appropriate 

organizations to take precautionary measures. A PRE-ALERT is generated when the Municipal 

Civil Protection Agency identifies signs regarding the potential occurrence of a catastrophe, 

based on reports from the observation network or through supplemental sources, as well as from 

visual perception or external reports. 

State of Alert: The state of ALERT is established when information is received regarding the 

imminent impact of a disturbing phenomena capable of affecting and even destroying, in such a 

way that it is very feasible that more specific measures and actions have to be enforced in order 

to respond to the emergency.

State of Alarm: The state of ALARM is established when there has been damage to the 

population, its assets and environment, which call for the need to execute the Municipal 

Contingency Plan. In the state of alarm, it is necessary to have the immediate intervention of 

responding agencies and organizations. The state of alarm can be present without previously 

going through a state of pre-alert or alert, as in the case of an earthquake. The state of 

emergency will always be declared in the alarm phase. The actions to be carried out at this level 

are practically the same as in the state of alert, however, if the condition is a catastrophe, and 
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according to the situation and to what is established by the Municipal Government and the 

Municipal Civil Protection Council, it may be necessary to request State and Federal 

cooperation. 

The Municipal Center for Emergency Operations (C.M.O.E. for its Spanish acronym): The 

C.M.O.E. is set up temporarily when information of a disaster occurring in municipal territory is 

received; it is the place where members of the Municipal Civil Protection Council meet to guide 

and coordinate actions, to make decisions and order their execution, as well as establish 

communication channels and follow-up on the situation that caused the disaster.

When to Activate the C.M.O.E.:

The C.M.O.E. is activated when a situation occurs or might occur of a magnitude that requires 

any amount of resources from several City/County Agencies for an extensive period of time, and 

when the magnitude of the problem requires central control, guidance and coordination to 

respond to the emergency. 

Types of Activation:

- Partial

- Total

Type of Risks that Activate It:

- Hydrometeorological 

- Geological 

- Socio-organizational 

- Chemical

- Sanitary 

Who Can Activate the C.M.O.E:

- Mayor

- City Manager

- Director, Civil Protection 

How to Activate It:

In case a state of PRE-ALERT, ALERT or ALARM is declared; telephone and radio 

communication (by pager) will be established with the coordinators of each work team that make 

up the Municipal Civil Protection Council. Furthermore, the Municipal Center for Emergency 

Operations will be established according to the current protocol. Key personnel from the 

Municipal Civil Protection Council will be notified, verifying their availability at the time the 

message was received.
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Table 9 shows the levels of state readiness in relation to the emergency situation.

Table 9

 Situation

Level

Normal Threat of 

Loss

Impending 

Loss 

Occurrence

Emergency

Municipal State National

Municipality Normal Pre-alert Alert Alarm Alarm Alarm

State Normal Normal Pre-Alert Alert Alarm Alarm

Federation Normal Normal Normal Pre-Alert Alert Alarm

5.3 Levels of Mutual Aid Within Each Country

County/City of San Diego, California 

The San Diego County Operational Area Emergency Plan has been designed to follow the 

statewide Standardized Emergency Management System (SEMS). The plan describes situations 

associated with natural disasters, technological incidents, and nuclear-related incidents. It 

delineates operational concepts relating to various emergency situations, identifies components 

of the Emergency Management Organizations, and describes the overall responsibilities for 

protecting life and property and assuring the overall well being of the population. The plan also 

identifies the sources of outside support, which might be provided through the mutual aid system 

by other jurisdictions, state and federal agencies and the private sector.

The mutual aid system is designed to ensure that adequate resources, facilities, and other support 

are provided to jurisdictions whenever their own resources prove to be inadequate to cope with a 

given situation. To facilitate the coordination and flow of mutual aid, the state has been divided 

into three Office of Emergency Services (OES) Administrative Regions and six OES Mutual Aid 

Regions. 

Through this mutual aid system, State OES can receive a constant flow of information from 

every geographic and organizational area of the state.

Tijuana, Baja California

The Municipality of Tijuana, B.C. has the Municipal Civil Protection System in which all the 

agencies related to emergency prevention and response at the three levels of government 

participation. The system also has the support of private, social, community and voluntary 

groups. In case of a hazmat incident of such magnitude that the effects of the emergency or 

disaster exceed the response capability of the Municipal Civil Protection System, the Mayor will 

seek the declaration of a State Emergency and will request the Governor of the State to activate 

the State Emergency Plan to provide the corresponding assistance.

By declaring a State Emergency, the Governor will implement the Emergency Response Plan 

through the State’s Civil Protection Administration. The Civil Protection State Board will be in 

charge of planning, coordinating, guiding and controlling actions towards solving urgent needs, 

implementing programs and protection, as well as safeguarding and rehabilitation activities in 

coordination with Municipal Systems. 
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In the event the emergency or disaster exceeds the response capabilities of State Civil Protection, 

the Governor of the State can request the federal authorities to make the corresponding 

Declaration and assign federal resources to carry out actions guided towards the protection of life 

and health. 

5.4 Federal Response

The U.S. Federal government can provide assistance for hazardous materials incidents if 

combined local and state capabilities or resources prove insufficient, incapable or inadequate. 

Once the National Response Center (NRC) has been notified of a release, they alert the Federal 

On-Scene Coordinator (FOSC), who may activate the Regional Response Team (RRT) or the 

National Response Team (NRT), depending on the severity of the incident. For incidents 

occurring in the San Diego County area, the Federal On-Scene Coordinator will be from the U.S. 

EPA Region IX, headquartered in San Francisco, California.

Normally, the U.S. EPA contributes to the response by working with the local, state, tribal and 

federal agencies and citizens to assure that the information needed to maximize the effectiveness 

of the response effort is easily accessible. If there is a spill where the responsible party is not 

identified, or does not contain and clean up the material, or adequately respond, the federal 

responsibilities will prevail as outlined in the National Contingency Plan. These responsibilities 

include assisting state and local responders or, in some circumstances, taking over the response.

Federal agreements between the U.S. and Mexico require that each country notify the other if 

there is a release or substantial threat of a hazardous materials release that may impact the other 

side of the border. The notification should occur between local authorities and between state 

authorities on both sides of the border to ensure that the information is properly elevated to the 

federal levels as required.

If it appears that the incident may exceed the capabilities of the local and state resources, the 

Federal On-Scene Coordinator will request the Joint Response Team to implement the Joint 

Contingency Plan.

The Mexican Federal Government can provide assistance through the National Civil Protection 

System for hazardous materials incidents to Tijuana, Baja California, if the combined responsible 

party and local capabilities or resources prove to be insufficient or inadequate. Civil Protection 

will appoint an On-Scene Coordinator (OSC) who will assist the Incident Commander by 

providing, coordinating, and overseeing needed federal resources.

5.4.1 U.S. Environmental Protection Agency 

The U.S. EPA activates and operates the federal response system for inland hazardous materials 

incidents and provides a Federal On-Scene Coordinator who can provide technical resources and 

expert advice on public health and environmental effects of a release. U.S. EPA also provides 

planning and preparedness assistance to prevent and mitigate environmental harm.

The U.S. EPA Regional Response Team performs regional level contingency planning. National 

level contingency planning is performed through the National Response Team (NRT). The 
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Regional Response Team (RRT) is co-chaired by the U.S. EPA and the U.S. Coast Guard 

(USCG) and consists of representatives from selected state and federal agencies. It plans, 

prepares and responds to hazardous materials incidents, providing advice and recommendations 

to the Federal On-Scene Coordinator. 

The U.S. EPA's Emergency Response Program has responsibilities pursuant to the National 

Contingency Plan to respond to incidents involving hazardous materials and petroleum products. 

The Program also conducts response operations during national disasters, under the authority of 

the Federal Response Plan. EPA provides support to the Federal Bureau of Investigation (FBI) 

for Crisis Management and the Federal Emergency Management Agency (FEMA) Consequence 

Management during terrorist events, under the direction of Presidential Decision Documents. 

These activities are carried out through the National Response System (NRS), which is the 

Federal mechanism for responding to releases or incidents. The NRS is a multi-agency/multilevel system and has been in existence for 30 years. It was designed to support state and local 

responses. A number of assets are available through the NRS including Regional Response 

Teams, Federal On-Scene Coordinators, contractor support and Special Forces. The Regional 

Response Team (RRT) brings together the resources from 16 Federal agencies and the states to 

support response activities. The Federal On-Scene Coordinator (FOSC) provides coordination 

and manages Federal response resources through the incident command/unified command 

system. The FOSC can bring a number of Special Forces to play during a response that include 

the EPA's Environmental Response Team, EPA's Radiological Environmental Response Team, 

and the U.S. Coast Guard's National Strike Force. These resources provide specialized technical 

expertise and resources to a response. EPA's response assets can be accessed through the 

National Response Center (NRC) at 1-800-424-8802. The Agency's Response Program has 

proven to be very effective during recent terrorist events, including the World Trade Center and 

numerous anthrax responses. The dedicated men and women working in this program have 

overcome a number of obstacles, and are on the cutting edge when it comes to effectively 

addressing public health and environmental issues associated with terrorist threats.

5.4.2 Federal Attorney General for the Protection of the Environment

This section will be developed by PROFEPA.

5.5 Joint Response Team

When the magnitude of an incident exceeds local and state response capabilities, or when a 

response involves more than one state jurisdiction, or federal lands, the federal government will 

coordinate the response operation and provide assistance as necessary. The U.S. EPA co-chairs 

the Joint Response Team for the U.S. and PROFEPA co-chairs for Mexico.

When the U.S. and Mexico have agreed to initiate a joint response to an incident, the function 

and responsibilities of the Joint Response Team include:

 Advise the Federal On-Scene Coordinator about measures needed to respond to the 

incident and what resources are available to carry out those measures

 Evaluate and make recommendations concerning the measures taken by the Federal 

On-Scene Coordinator

 Provide continuing advice to the Federal On-Scene Coordinator
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 Coordinate and use as appropriate the resources that agencies or persons of the U.S. or 

Mexico or a third party can contribute

 Assist the Federal On-Scene Coordinator in preparing information releases for the public

 Participate in the termination of response

In a non-emergency mode, the JRT coordinates U.S.-Mexico border area contingency planning 

and training activities.

For inland releases, the U.S. EPA provides the Federal On-Scene Coordinator. Upon notification 

of a release of hazardous substances that is crossing or is likely to cross the U.S.-Mexico border, 

the National Response Center will notify the Federal On-Scene Coordinator. The Federal OnScene Coordinator will determine as quickly as possible the need for activating the Regional 

Response Team, the Joint Response Team, the Environmental Response Team (ERT), or the 

National Response Team. For incident notification in Mexico, Civil Protection maintains a 24-

hour telephone number in Mexico City. For incident notification in the U.S., the NRC maintains 

a 24-hour number in Washington D.C.

5.6 San Diego-Tijuana Emergency Response Communications

Historically, there has been informal communications between San Diego and Tijuana 

emergency response agencies regarding hazardous materials incidents. Officials of these 

jurisdictions have communicated through beepers and phone lines during these incidents. As a 

part of this informal communication, binational technical support has been exchanged between 

the County/City of San Diego and the City of Tijuana.

As a part of the binational plan development, representatives from the Federal, State and local 

agencies from the United States and Mexico have formalized communications and notifications 

procedures between San Diego and Tijuana Emergency Responders. A complete flow chart of 

north and southbound notification procedures is illustrated in Appendix G. The Notification 

Protocol will be discussed in section 6.2.
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6.0 BINATIONAL EMERGENCY RESPONSE OPERATIONS 

General Information

The Incident Command System (ICS) is a standardized on-scene emergency management system 

specifically designed to allow its user(s) to adopt an integrated organizational structure equal to 

the complexity and demands of single or multiple incidents, without being hindered by 

jurisdictional boundaries. The Incident Command System is built around five major 

management sections in accordance with the Standardized Emergency Management System 

(SEMS).

a) Command: Sets the response objectives and priorities. It has the overall responsibility at 

the incident or event.

b) Operations: Manages the tactical operations to carry out the incident action plan, 

develops and evaluates the tactical objectives, organizes and directs all the resources 

available (including the hazardous materials group). 

c) Planning: Responsible for collecting, evaluating, disseminating, and using information 

about the incident and status of resources. This information is needed to: 1) understand 

the current situation, 2) predict the probable course of incident events, and 3) prepare 

alternative strategies for the incident.

d) Logistics: Responsible for providing facilities, services, and material in support of the 

incident response. Identifies and processes requests for additional resources to support 

planned and expected operations.

e) Finance/Administration: Is responsible for all financial and cost analysis aspects of the 

incident. Monitors the costs, provides accounting, procurement, time recording and cost 

analyses.

Sections under the Incident Command System are staffed and utilized as required depending on 

the scale of the incident. 

6.1 Initiation of Action

A hazardous materials response action takes place when an incident merits the participation of 

the members of the Hazardous Materials Incident Response Team of the City and County of San 

Diego (HIRT) and/or of the City of Tijuana. 

6.1.1 Incident Command Authority

San Diego

This section is intended to provide a brief overview of the regulations which provide guidance 

for the implementation of the Incident Command System (ICS) and how the ICS is typically 

utilized in the County of San Diego.

According to Federal (29 CFR 1910.120 (q)(3)(i)) and California (Title 8 CCR Section 

5192(q)(3)(a)) regulations, the senior emergency response official responding to an emergency 

shall become the individual in charge of a site-specific Incident Command System (ICS). 
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In San Diego County, the local fire agency is the first responder to all non-roadway hazardous 

substance releases. The senior emergency response official from that fire agency fulfills the role 

of Incident Commander (IC).

The authority for incident command at the scene of an on-highway hazardous substance incident 

is vested in the appropriate law enforcement agency having primary traffic investigative

authority on the highway where the incident occurs (CVC §2454). The California Highway 

Patrol is responsible for incident command at the scene of an on-highway hazardous substance 

spill or disaster on all highways (and roadways in the unincorporated areas) where the 

department has primary traffic investigative authority. On all other roadways the local police 

department or Sheriff’s department has primary traffic investigative authority and is responsible 

for ensuring that ICS is instituted at hazardous substance spills. In San Diego County, 

agreements are in place between the local police and Sheriff’s departments and the local fire 

agencies, which authorize the fire agencies to perform the function of incident commander at 

hazardous substances releases on all (non-highway) roadways. An exception to this is in place in 

the City of Vista, where the Sheriff retains the role of IC for all hazardous substance incidents on 

roadways.

According to CGC 8670.7, the Department of Fish and Game has the primary authority to direct 

prevention, removal, abatement, response, containment, and cleanup efforts with regard to all 

aspects of any oil spill in the marine waters of the state.

Additionally, CGC 8607 requires that state and local agencies use a standardized emergency 

management system (SEMS) to coordinate multiple jurisdictions or multiple agency emergency 

and disaster operations.

In the Operational Area of San Diego, the Incident Commander will determine the participation 

of the Hazardous Materials Incident Response Team (HIRT). HIRT is comprised of members 

from the San Diego Fire-Rescue Department’s Hazardous Materials Team and members of the 

Hazardous Emergency Response Team from the San Diego County Department of 

Environmental Health (DEH). 

On scene, the Incident Commander will appoint the San Diego Fire-Rescue Department 

Hazardous Materials Team Captain, as the Hazardous Materials Group Supervisor under the 

Operational Section of the Incident Command System. The Hazardous Materials Group 

Supervisor is responsible for coordinating and directing all hazardous materials activities related 

to the incident. They are tasked with providing personnel, equipment and expertise to safely 

mitigate hazardous materials incidents. The supervisor has thorough knowledge of agency 

specific requirements, operational procedures, risk analysis, and safety considerations to manage 

the incident.

The Hazardous Materials Group Supervisor’s responsibilities include:

1) Obtain briefing from the Operations Section, or from the Incident Commander if an 

Operations Chief is not appointed

2) Ensure the development of control zones and access control points
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3) Evaluate and recommend public protection actions

4) Ensure that current weather data and future weather predictions are obtained

5) Establish environmental monitoring of the hazard site for contaminants

6) Ensure that a Site Safety Plan is developed and implemented

7) Conduct safety meetings with the hazardous materials group

8) Participate in the development of the Incident Action Plan

9) Ensure that recommended safe operational procedures are followed

10) Ensure that proper personal protective equipment is selected and used

11) Maintain Unit log

12) Ensure that all appropriate allied agencies are notified, including Local, State, and Federal, 

and Mexico when appropriate. 

During an incident, a member from the San Diego County Department of Environmental Health 

is routinely assigned to work closely with the Hazardous Materials Group Supervisor to address 

public health and safety issues. They are able to:

1) Identify or assist in the identification of the material on scene

2) Act as technical advisor on characteristics and direct health and environmental effects of 

the hazardous materials on scene

3) Assist the Incident Commander in the determination of the need for evacuation and the 

establishment of the reentry criteria

4) Perform multi-media sampling to determine the extent of the environmental contamination 

and to identify any public health concerns

5) Recommend cleanup levels and advise on the adequacy of cleanup both during and after 

the emergency

6) Assist the IC in obtaining financial and other resources necessary for any required cleanup.

7) Provide on-scene liaison with other agencies and Mexico.

Tijuana

This information will be provided by Mexican authorities.

6.2 Binational Notification

For the purpose of this plan, the Hazardous Materials Group Supervisor, under the Incident 

Command System, is tasked with triggering the notification to counterparts in Tijuana or San 

Diego.

During a hazardous materials incident, the Hazardous Materials Group Supervisor will gather 

and analyze all incoming information from the incident. A decision will be made with 

concurrence of the Incident Commander and the emergency responder from DEH (if the incident 

occurs in San Diego) to activate the binational notification protocols.

In order to facilitate the notification between the Hazardous Materials Response Teams of San 

Diego and Tijuana, a binational notification protocol has been developed. A flow chart of the 

north and southbound notification procedures is included in Appendix G.
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The San Diego County Communications Center, Station M, and the Tijuana Fire Department 

will serve as the dispatch centers for the hazardous materials binational notifications. Each of 

the dispatch centers will complete the Local Emergency Notification Form (Appendix I) when 

contacted by their respective Hazardous Materials Group Supervisors on scene. The information 

compiled on the form will then be provided to the dispatch center of the Sister City. The 

recipient dispatch center will then provide the information to the local emergency response team.

6.3 Binational Mutual Aid Request

There are two types of aid that may be provided or received under this plan: technical and 

logistical assistance. The City/County of San Diego will provide technical assistance to their 

counterparts in Tijuana. The assistance to be provided by the City/County of San Diego will be 

via telephone between the Hazardous Materials Team and their counterparts in Tijuana. The 

mutual exchange of equipment may also be necessary to assist in the identification and 

mitigation of potentially hazardous substances that may compromise public health and safety. 

Once health and environmental impacts have been alleviated, all equipment is to be returned to 

their respective governmental agency. 

The United States Environmental Protection Agency may provide logistical support as deemed 

appropriate.

As previously stated in section 5.4.1, any direct assistance in responding to an incident in either 

country that exceeds local capability will be initiated through the U.S./Mexico Joint Response 

Team.

7.0

TRAINING AND EXERCISES

Each of the operational plans referenced requires training and exercising to ensure that 

responders are always in a state of readiness. Joint training and exercising are important to 

emphasize as binational relationships and activities develop.

The preparation of a written plan with well-defined operational roles, policies and resource 

acquisition procedures is an essential step. The written plan should contain training requirements 

and procedures for responders. Exercising the plan provides training, allows response personnel 

to become thoroughly familiar with response procedures, resources and systems, and enables 

planners to identify areas of the plan that need improvement. 

While not included in this binational emergency response plan, a written training plan based on 

the unique needs of the San Diego/Tijuana area could be developed by the San Diego/Tijuana 

Emergency Preparedness and Response Task Force (Task Force). The Task Force is addressed 

in the memorandum of understanding signed by the participating parties. 
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7.1 Training

Individual organizations are responsible for their own training. Internal training, private 

contractors, and state or regional training resources are some of the binational options available 

to local agencies. Organizations must ensure that personnel are adequately trained for the 

response operations they may conduct. This training must comply with all applicable local, 

state, and federal worker health and safety regulations. 

Currently, hazardous materials specialists in both San Diego and Tijuana participate in regular 

training sessions. For example, the Department of Toxic Substances Control of the California 

Environmental Protection Agency funds hazmat training programs for first responders in 

municipalities throughout Baja California. The Governor’s Office of Emergency Services 

periodically receives disaster-planning officials from Baja California at the California 

Specialized Training Institute (CSTI) in San Luis Obispo. These and other avenues for training 

should be explored and highlighted in the training plan developed by the Task Force. 

7.2 Exercises

Local and regional hazardous materials contingency plan exercises are encouraged, as they are 

the best means of keeping the plans current and active. Tijuana, Baja California and San Diego 

County, California should routinely conduct joint exercises that allow for cross training of 

personnel. This will ensure that deficiencies in response activities are identified. To keep this 

plan current, the plan will be exercised.
Binational Hazardous Materials Prevention and Emergency Response Plan Among the County

Of San Diego, the City of San Diego, California, and the City of Tijuana, Baja California

 January 14, 2013