BINATIONAL PREVENTION 

AND EMERGENCY RESPONSE PLAN 

BETWEEN 

DOUGLAS, ARIZONA AND AGUA PRIETA, SONORA 

November 9, 2001 

Binational Prevention and Emergency Response Plan 

Between Douglas, Arizona and Agua Prieta, Sonora 

November 9, 2001 i

TABLE OF CONTENTS 

SECTION PAGE 

ACKNOWLEDGMENTS .............................................................................................................. v

FORWARD................................................................................................................................... vii

MEMORANDUM OF UNDERSTANDING ................................................................................. 1

EMERGENCY NOTIFICATION FORM ...................................................................................... 7

1.0 INTRODUCTION .............................................................................................................. 9

 1.1 Douglas, Arizona - Agua Prieta, Sonora Plan Area ...................................................... 10

 1.1.1 Physical Environment ............................................................................ 10

 1.1.2 Population .............................................................................................. 11

 1.1.3 Economy ................................................................................................ 12

 1.1.4 Infrastructure .......................................................................................... 13

 1.1.5 Cultural Significance ............................................................................. 13

 1.2 Authority ....................................................................................................................... 13

 1.2.1 Laws and Statutes .................................................................................. 14

 1.2.2 Regulations ............................................................................................ 14

 1.2.3 Binational Agreements........................................................................... 14

 1.3 Other Applicable Contingency Plans ............................................................................ 14

 1.3.1 Binational Contingency Plans ................................................................ 15

 1.3.2 United States Contingency Plans ........................................................... 15

 1.3.3 Mexico Contingency Plans .................................................................... 16

2.0 HAZARDS ANALYSIS AND RISK REDUCTION ....................................................... 19

 2.1 Businesses Using, Handling, or Storing Hazardous Materials ............................. 22

 2.1.1 Douglas, Arizona ................................................................................... 19

 2.1.2 Agua Prieta, Sonora ............................................................................... 20

 2.2 Transportation Systems ................................................................................................. 21

 2.2.1 Douglas, Arizona ................................................................................... 21

 2.2.2 Agua Prieta, Sonora ............................................................................... 22

 2.3 Ports of Entry ................................................................................................................ 23

 2.4 Sensitive Populations and Vulnerable Areas ................................................................ 24

 
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TABLE OF CONTENTS (continued) 

SECTION PAGE 

2.5 Drinking Water Supplies and Wastewater Treatment .................................................. 25

 2.5.1 Douglas, Arizona ................................................................................... 26

 2.5.2 Agua Prieta, Sonora ............................................................................... 26

 2.6 Risk Reduction Opportunities and Recommendations ................................................. 27

3.0 EMERGENCY RESPONSE ROLES AND RESPONSIBILITIES ................................. 29

 3.1 Notification ................................................................................................................... 29

 3.2 Private Response Mechanisms ...................................................................................... 29

 3.3 Local Response ............................................................................................................. 29

 3.3.1 City of Douglas, Arizona Mutual Aid Request ...................................... 29

 3.3.2 City of Agua Prieta, Sonora Mutual Aid Request.................................. 30

 3.3.3 Local Response Duties ........................................................................... 30

 3.4 State Response .............................................................................................................. 31

 3.5 Federal Response .......................................................................................................... 31

4.0 INCIDENT RESPONSE OPERATIONS AND RESOURCES ....................................... 35

 4.1 Discovery and Notification ........................................................................................... 35

 4.2 Preliminary Assessment and Initiation of Action ......................................................... 35

 4.2.1 Preliminary Assessment ......................................................................... 35

 4.2.2 Initiation of Action ................................................................................. 36

 4.3 Containment .................................................................................................................. 36

 4.4 Documentation and Cost Recovery .............................................................................. 36

 4.5 Evacuation or Shelter-In-Place ..................................................................................... 37

 4.6 Post-Incident Management ........................................................................................... 37

 4.7 Response and Cleanup Funding Availability ................................................................ 38

 4.7.1 State Funds ............................................................................................. 38

 4.7.2 Federal Funds ......................................................................................... 38

 4.8 Communications ........................................................................................................... 38

 4.9 Health and Safety .......................................................................................................... 39

 4.10 Response Resources ...................................................................................................... 39

5.0 TRAINING AND EXERCISES ....................................................................................... 41

 5.1 Training ......................................................................................................................... 41

 5.2 Exercises ....................................................................................................................... 41
Binational Prevention and Emergency Response Plan 

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TABLE OF CONTENTS (continued) 

LIST OF APPENDICES 

Appendix A Hazardous Material Planning and Emergency Response Contacts Directory 

Appendix B Businesses Using, Handling, or Storing Hazardous Materials - Douglas 

Appendix C Maquiladora and Facility Directory - Agua Prieta 

Appendix D Sensitive Populations and Vulnerable Areas 

Appendix E U.S. Customs Service Procedures for Cross Border Emergency Response 

Appendix F U.S. Immigration and Naturalization Service Procedures for Cross Border 

Emergency Response 

Appendix G Cross Border Emergency Medical Services Response Sequence 

Appendix H Douglas Hazardous Materials Emergency Procedures 

Appendix I Response Resources 

Appendix J Emergency Notification 

Appendix K Abbreviations and Acronyms 

Appendix L Definitions 

Appendix M Revision Diary 

LIST OF MAPS 

Map 1: Map of U.S.-Mexico Sister Cities 

Map 2: Aerial Photo of Douglas, Arizona/Agua Prieta, Sonora 

Map 3: Map of Douglas, Arizona/Agua Prieta, Sonora 

Map 4: Aerial Photo of Douglas, Arizona 

Map 5: Map of Douglas, Arizona 

Map 6: Aerial Photo of Agua Prieta, Sonora 

Map 7: Map of Agua Prieta, Sonora 
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Binational Prevention and Emergency Response Plan 

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ACKNOWLEDGMENTS

This plan was initiated and prepared by a Steering Committee for the communities of Douglas, Arizona 

and Agua Prieta, Sonora with the support of the department heads of all participating agencies. The 

Steering Committee members include: 

Richard Ross Chief, Fire Department, Douglas, Arizona 

Miguel Campillo Director, Civil Protection, Agua Prieta, Sonora, Mexico 

Mike Foster Emergency Response Specialist, Arizona Department of 

Environmental Quality (ADEQ) 

Saul Torres Legal Director, Civil Protection, Sonora, Mexico 

Jose Federico Cota Felix Assistant Administrator, Mexican Customs 

Charles A. Stemple Area Port Director, U.S. Immigration and Naturalization Service 

Juan Amador Zozaya Durazo Local Assistant Director, Mexican Immigration 

Lauren Volpini U.S.-Mexico Border Liaison, U.S. EPA Region IX 

 PROFEPA, Sonora, Mexico 

 U.S. Customs Service, Douglas, AZ 

The plan was prepared with the support of the U.S. Environmental Protection Agency, Region IX. 

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

James Y. Tong Port Director, U.S. Customs Service, Douglas Port of Entry 

Adalberto F. Acuña Supervisory Customs Inspector, U.S. Customs Service, Douglas, AZ 

Stephen T. Rich Supervisory Customs Inspector, U.S. Customs Service, Douglas, AZ 

Jack Boyington Senior Inspector, U.S. Customs Service, Douglas, AZ 

Mark Springer Senior Inspector, U.S. Customs Service, Douglas, AZ 

Carlos Kitazawa Chief, Civil Protection, Sonora, Mexico 
Binational Prevention and Emergency Response Plan 

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Otto Guillermo Claussen Iberry Director, PROFEPA, Sonora, Mexico

Gilberto Celaya Reyna Deputy Director, PROFEPA, Sonora, Mexico 

Frank Garcia HazMat Director, Douglas Fire Department 

Johnny Pedrego Captain, Douglas Fire Department 

Carmen Noriega English/Spanish Translator 

Rosa Maria Boadella Interpreter 

Micah Perlin Project Manager, Science Applications International Corporation 

 City of Douglas City Council 
Binational Prevention and Emergency Response Plan 

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BINATIONAL PREVENTION AND EMERGENCY RESPONSE PLAN 

FOR THE REGIONAL MUNICIPALITIES OF 

DOUGLAS, ARIZONA, UNITED STATES OF AMERICA 

AND AGUA PRIETA, SONORA, MEXICO

FORWARD

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

established a foundation for cooperative efforts regarding preparedness, mitigation, response and 

prevention of hazardous substance releases in the border area, that area situated 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 for Sister City Planning. They recognize the benefits of cross border 

response and cooperative sharing of resources and manpower in times of national disasters. So too, 

the municipalities of Douglas, Arizona, and Agua Prieta, Sonora 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 

a 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, safety, and environment 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 local, state, regional, or federal plans and to better serve the local community 

by creating an infrastructure for responding to emergencies. 
Binational Prevention and Emergency Response Plan 

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viii November 9, 2001 
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MEMORANDUM OF UNDERSTANDING ON CROSS BORDER COMMUNICATIONS 

AND EMERGENCY RESPONSE STRATEGIES FOR POLLUTING INCIDENTS FOR 

THE MUNICIPALITIES OF DOUGLAS, ARIZONA, UNITED STATES AND 

AGUA PRIETA, SONORA, MEXICO 

The cities of Douglas, Arizona and Agua Prieta, Sonora have agreed to provide mutual cooperation 

to effectively reduce the risk of and respond to threats to the public health, safety and welfare of the 

communities caused by explosions, fires, spills, or releases of hazardous substances into the 

environment. This understanding is to reinforce the cooperation between the cities to be able to 

prevent and respond more efficiently to these emergencies. 

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

authorities in both cities. 

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, if the 

normal application of law in either country might lead to delay or difficulty in the rapid 

execution of necessary emergency response measures. 

2. The agencies of both municipalities charged with emergency responsibilities will seek to 

ensure that in areas of common concern, plans of the two municipalities 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, a Binational 

Emergency Planning Committee (BEPC) will be established and will meet at least once 

every two years. The BEPC will address planning and preparedness activities and conduct 

an annual binational exercise to evaluate and improve the coordination of this Sister City 

plan. 

3. It is mutually agreed that this understanding 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 industry standards. The decision to render aid to the Sister 

City rests ultimately with the City Manager of Douglas, Arizona, when requested by the 

Douglas Fire Chief, and with the Mayor of Agua Prieta, Sonora, when requested by the 

Director of Civil Protection in Agua Prieta. Each Sister City may decide not to render aid, 

depending on each incident, if its resources are not capable of meeting obligations in its own 

jurisdiction. 

4. The city providing the assistance will supervise their necessary personnel and assigned 

equipment. The group receiving aid will have authorized persons to provide general 

directions related to the work. The responsible party for the spill receiving the assistance 

will be responsible for providing the responders the necessary materials, food, shelter, 
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temporary housing, gasoline and lubricants for the equipment and any other such items 

needed to respond adequately. 

5. The municipalities involved in this understanding will not be required to pay compensation 

to the other for services rendered. 

6. Each government will use its best efforts to facilitate the movement of evacuees, refugees, 

emergency response personnel, equipment or other resources into its territory or across its 

territory from one area of the country to another when such movement is desired to facilitate 

emergency response operations in either country. To this end: 

a. To the maximum extent permitted by law and regulation, the Government of the 

United States and the Government of Mexico, during the period of an emergency, 

will use their best efforts to minimize any delays, which might otherwise be caused 

by border crossing requirements. Both governments will also use their best efforts to 

ensure that emergency response equipment, facilities, and supplies may be used 

effectively and to mutual advantage in joint efforts, tests, preparations and exercises. 

b. The emergency response agencies of both governments will consult together to 

identify and remove any serious potential impediments to cross border assistance, 

emergency operations and the cross border flow of commodities for emergency 

response. Unresolved problems should be communicated to the Joint Response Team 

for appropriate action. 

7. For the purpose of emergency relief, health and welfare services, each government will use 

its best efforts to ensure that the affected persons receive the best treatment available. 

8. The parties agree to hold each other harmless from any act or omission of any party=s 

personnel during such time that said personnel are serving in the jurisdiction of any party for 

assistance pursuant to the terms of this understanding. 

9. Each government will use its discretionary powers as far as possible to avoid a levy of any 

national tax on the services, equipment and supplies of the other country when the latter are 

engaged in emergency response activities on the territory of the other, and will use their best 

efforts to encourage state, provincial, and local authorities to do likewise. 

10. Each government will include provisions for adequate security and care for the personnel, 

equipment, and resources of the other country in authorized emergency response activities. 

Such provisions will also ensure access to supplies necessary for their return. 

 

11. Each government will call to the attention of its federal, state, local or other authorities in 

areas adjacent to the international border the desirability of achieving compatibility in 

emergency response planning between the United States and Mexico. For the purpose of 

achieving the most effective emergency response planning cooperation possible between the 
Binational Prevention and Emergency Response Plan 

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United States and Mexico, each government will, in a manner consistent with national plans 

and policies, also encourage and facilitate cooperative emergency arrangements between 

adjacent jurisdictions on matters falling within the competence of such jurisdictions. 

12. Every two years, the parties will examine the present understanding in light of its application 

in order to decide whether it must 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. 

13. Any party to this understanding may withdraw at any time giving thirty calendar days prior 

written notice to all the parties. 

Any party may change its service address by 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: 

Office of the Mayor Presidencia Municipal 

City of Douglas H. Ayuntamiento de Agua Prieta 

425 10th St. Calle 6 y Avenida 17 

Douglas, Arizona 85607 Agua Prieta, Sonora 

In witness, whereof, this understanding has been executed on the 9th day of November, 2001.

 

//original signed by// //original signed by// 

Ray Borane C. Irma Villalobos de Teran 

Mayor Presidenta Municipal 

Douglas, Arizona Agua Prieta, Sonora 

//original signed by// //original signed by// 

Michael Ortega C.P. Martin F. Villa Hernandez 

City Administrator Secretario del H. Ayuntamiento 

 Douglas, Arizona Agua Prieta, Sonora 
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24-HOUR EMERGENCY NOTIFICATION

Any substantial threat to the public health, safety, or the environment due to an accidental spill or 

release of an oil or hazardous material into the air, surface water, groundwater, or onto the ground, 

should be reported to:

UNITED STATES MEXICO

First Response

911 (from U.S.)

001-520-364-8422 (from Mexico)

First Response

060 (from Mexico)

011-526-536-2125 (from U.S.)

011-526-534-3282 (from U.S.)

National Response Center

1-800-424-8802 (from U.S.)

001-202-267-2675 (from Mexico)

U.S. EPA Region IX Spill Phone

1-415-947-4400 (from U.S.)

001-415-947-4400 (from Mexico)

National Communications Center: CENACOM

(Federal) Civil Protection Agency 

01-800-004-1300 (from Mexico)

01-5-550-4885 (from Mexico)

011-525-550-4885 (from U.S.)

State of Arizona: ADEQ

Department of Environmental Quality

(Releases from fixed facilities)

(State On-Scene Coordinator)

1-602-390-7894 (from U.S.)

001-602-390-7894 (from Mexico)

(For Spill Reporting)

1-800-234-5677 x2330 (from U.S.)

001-602-207-2330 (from Mexico)

State of Arizona: DPS

Department of Public Safety

(Releases during transportation)

1-602-223-2163 (from U.S.)

001-602-223-2163 (from Mexico)

State Communications Center 

Civil Protection Agency, Sonora

01-62-17-54-30 (from Mexico)

01-62-17-38-16 (from Mexico)

01-62-17-54-10 (from Mexico)

011-52-62-17-54-30 (from U.S.)

011-52-62-17-54-10 (from U.S.)

011-52-62-17-38-16 (from U.S.)

Douglas, Arizona Port of Entry

(For Cross Border Air Support)

U.S. Immigration and Nat. Service

1-520-364-2028 (from US)

1-520-364-5532 (from US)

001-520-364-2028 (from Mexico)

001-520-364-5532 (from Mexico)

U.S. Customs

1-520-364-8486 (from US)

001-520-364-8486 (from Mexico)

Agua Prieta, Sonora Port of Entry

Mexican Federal Fiscal Police

011-52-63-38-02-84 (from US)

01-63-38-02-84 (from Mexico)

Mexican Customs

011-52-63-38-00-84 (from US)

011-52-63-38-30-33 (from US)

01-63-38-00-84 (from Mexico)

01-63-38-30-33 (from Mexico)
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EMERGENCY NOTIFICATION FORM

When any party is notified of an actual or threatened spill, release, fire or explosion of a hazardous 

substance conforming to this plan, the following information should be provided. A larger version 

of this form is provided in Appendix J. 

a. Reporting party (name of functionary or responder, 

telephone number, and address) / Informante 

(nombre del funcionario o de él que responde, 

número de teléfono y dirección):

b. Suspected responsible party (name, telephone 

number, and address) / Probable entidad 

responsable (nombre, número de teléfono y 

dirección):

c. Description of incident (how the release, spill, fire, or explosion occurred) / Descripción del incidente (cómo 

ocurrió la fuga, el derrame, el fuego o la explosión):

d. Date and time of incident / Fecha y hora del incidente:

e. Vehicle identification number / Número de identificación del vehículo:

f. Location / Lugar:

g. Type of container and capacity / Tipo de contenedor y capacidad:

h. Specific identifiers (e.g., cross road, railroad milepost) / Identificadores específicos (e.g., intersección, 

kilómetro de la vía del ferrocarril):

i. Hazardous substances involved / Sustancias 

peligrosas involucradas:

j. Quantity / Cantidad:

k. Spill or release to air, soil, or water: Where is it going? How much to water? / Derrame o escape al aire, 

suelo o agua: ¿hacia dónde va? ¿Qué cantidad va al agua? :

l. Corrective actions taken / Acciones de corrección tomadas:

m. Roads closed / Caminos cerrados:

n. Number of deaths, injuries, or evacuations / Número de muertos, heridos o evacuaciones:

o. Other notifications made / Otras notificaciones hechas:

p. Additional comments / Comentarios adicionales:
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Binational Prevention and Emergency Response Plan 

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1.0 INTRODUCTION

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 creates 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 Substance 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 through 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 Douglas, Arizona and 

the Agua Prieta, Sonora area. It consists of an overview of the plan area, a communication strategy 

ready for implementation during a polluting incident, and identification of hazards and vulnerable 

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

is not intended to replace or supplant any plans in effect in the region, but is designed to aid in a 

binational response to a hazardous materials incident that may affect the border area. 

This plan at no time usurps existing federal, state, county, regional, or municipal plans within the 

jurisdictional boundary addressed by this plan. 

If the region affected declares an emergency under this plan to be in effect, the municipality affected 

will, subject to its own disaster plan, inform state and federal officials, as identified in their 

respective plans. The Binational Prevention and Emergency Response Plan is activated for the short 

term only and it will provide specifics for the coordination of resources and equipment.

The initial and prime responsibility for providing immediate assistance rests with the city, county or 

regional government affected. It is at this level that services such as fire, police, health, social 

services, public works, and public utilities are located. An emergency under the Binational 

Prevention and Emergency Response Plan may be declared when (1) a city, county or region so 

requests from the head of government, (2) the emergency, due to geography, may dictate evacuation 

into a neighboring region, (3) the municipality, county or region affected may request mutual aid 

support, supplying manpower, resources, social services, fire, public works, emergency health 

services, and other specialized expertise as deemed necessary by the affected municipality, or (4) the 

emergency may affect a neighboring municipality, county, or region. 

A directory of essential planning and response contacts is located in Appendix A. 
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1.1 Douglas, Arizona - Agua Prieta, Sonora Plan Area

The City of Douglas is located in Cochise County in southeastern Arizona on the US-Mexico border. 

The City of Agua Prieta is located just south of Douglas in the northeastern region of the state of 

Sonora, Mexico. By highway, the Sister Cities are located approximately 120 miles (193 km) 

southeast of Tucson, Arizona and 233 miles (375 km) northeast of Hermosillo, Sonora. Maps and 

aerial images of Douglas and Agua Prieta are provided in the back of this plan. 

Douglas, Arizona originally served as a staging area for cattle ranchers during their annual round-ups 

in the late 1800s. Douglas was incorporated in 1905 and developed as a smelter site for the copper 

mines in the area because of an abundant supply of water and its railroad service. 

Today, Douglas is experiencing a transition from a copper and ranching town to one specializing in 

manufacturing and tourism. Because of its location on the Mexican border, international commerce 

and the maquiladora industry have become important elements of the local economy. Much of the 

recent growth in Douglas can be attributed to the industrial development and rapid population 

growth that has occurred in Agua Prieta. 

The town of Agua Prieta was founded in 1899. Two years later in response to the construction of a 

railroad in Douglas in1901, Agua Prieta=s population began to grow substantially. Agua Prieta 

became a municipality by decree in 1916, and then a city in 1942. 

The proximity of Agua Prieta to the railroad, which facilitated the shipment of goods and supplies, 

along with the unexpected boom caused by the copper mines, greatly stimulated the economy of this 

growing city. Today Agua Prieta=s economy is fueled by a burgeoning maquiladora industry and 

tourism. 

1.1.1 Physical Environment

The Cities of Douglas and Agua Prieta are surrounded by mountain ranges. These are the Swisshelm 

and Perilla Mountains to the east, the Mule Mountains to the west on the U.S. side, and the Los Ajos, 

San Jose and Aniba Cachi mountain ranges on the Mexican side. The City of Douglas is located 

3,990 feet (1,402 meters) above sea level, at 31 20> 31.5A latitude and 109 32> 14A longitude. Agua 

Prieta resides at 3,599 feet (1,096 meters) above sea level, at 31 19> 32A latitude and 109 32> 14A

longitude. 

The Whitewater Draw is the only significant surface water body in the area. It runs down the eastern 

border of Douglas and along the international border, where it becomes the Rio Agua Prieta, a 

perennial body of water. Throughout most of the area, the Whitewater Draw and its tributaries flow 

only after precipitation and seasonal snowmelt. 

The local climate is characteristic of the dry desert. The average monthly maximum temperature is 

79.2 F (26.2C), with an average temperature of 93.1 F (34C) from June to August. The average 

monthly minimum temperature is 44.4 F (6.7C). Annual sunshine days average roughly 320 days 
Binational Prevention and Emergency Response Plan 

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per year. Annual precipitation averages 13.05 inches (33.15 cm), with relative humidity of 30%. 

Most of the rain falls in the summer months, during the monsoon season. Prevailing winds in the 

area blow north-northeast during the day and south toward Mexico in the evening. 

Table 1 shows monthly temperatures (daily maximums and minimums) and precipitation for the plan 

area. 

Table 1

WEATHER

Douglas, Arizona / Agua Prieta, Sonora

Month Daily Maximum

(F/C)

Daily Minimum

(F/C)

Average Total

Precipitation (inches/millimeters)

January 62.3 / 16.8 28.9 / -1.7 0.87 / 2.21

February 66.7 / 19.3 31.6 / -0.2 0.63 / 1.60

March 71.9 / 22.2 36.0 / 2.2 0.5 / 1.27

April 79.2 / 26.2 41.4 / 5.2 0.28 / 0.71

May 86.4 / 30.2 49.2 / 9.5 0.32 / 0.81

June 95.3 / 35.2 57.8 / 14.3 0.54 / 1.37

July 93.9 / 34.4 64.2 / 17.9 3.93 / 9.98

August 91.4 / 33.0 62.6 / 17.0 3.2 / 8.13

September 88.6 / 31.4 56.8 / 13.8 1.54 / 3.91

October 80.8 / 27.1 45.3 / 7.4 1.03 / 2.62

November 70.1 / 21.2 34.3 / 1.3 0.62 / 1.57

December 62.7 / 17.1 28.7 / -1.8 1.13 / 2.87

Year 79.1 / 26.2 44.7 / 7.1 14.6 / 37.08

Source: Western Regional Climate Center, 2001. 

 1.1.2 Population

Based on 1998 figures from the U.S. and Mexican Census Bureaus, the estimated cumulative 

population of the plan area is 117,250 with 17,250 persons residing in Douglas, AZ and 100,000 in 

Agua Prieta, Sonora. 

Douglas experienced slow but consistent growth in the 1990s. Between 1990 and 1998, the 

population grew 15.3 percent. Between 1997 and 1998, Douglas ranked 66th among 87 incorporated 

cities for population growth. Recently, the City of Douglas annexed two areas: the State prison and 
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the 23rd Street area increasing population totals by 2,500 persons. The State prison is 10 miles (16.1 

km) from Douglas proper and is primarily a self-functioning entity. 

The population of Douglas reflects the general maturation of the natural population. The population 

under the age of 25 fell 9.4 percent during 1980 and 1990, while those 25 and older increased 5.1 

percent. The fastest growing age group of the population is 65 years and older. 

In Agua Prieta, the population has increased 100 percent from approximately 56,000 in 1995 to 

roughly 115,000 in 2000. The sharp increase is attributed to the expansion of the maquiladora 

industry. The majority of Agua Prieta=s population is under 30. 

Table 2

POPULATION

1990 1995 2000

Douglas 12,822 14,780 16,812

Agua Prieta 37,664 54,681 115,000

Cochise County 97,624 122,300 117,755

Source: U.S. Census Bureau, Arizona Department of Economic Security, and Douglas Fire Dept. (2001)

1.1.3 Economy

International commerce, manufacturing, retail and tourism are the primary sectors of the area 

economy. The geographic proximity of Douglas and Agua Prieta and the growth of the maquiladora 

sector, have resulted in an increased interdependence of the two cities= economies in recent years. In 

1998, roughly 30 percent of the retail sales in Douglas were attributed to Mexican residents crossing 

the border to shop. The close economic ties are also evident in the 21 maquiladora manufacturing 

plants located in Agua Prieta, and the various brokering houses in Douglas. The majority of the 

maquiladoras in Agua Prieta are located in two industrial parks 2 miles (3.2 km) from the border. 

Douglas has one industrial park located 8 miles (12.9 km) from the border. 

 

The Arizona State Prison, which was recently annexed by Douglas, is the city=s largest employer. 

The second largest employer is the Douglas Unified School District, followed by the Southeast 

Arizona Medical Center. 

A listing of Douglas and Agua Prieta=s industrial facilities and maquiladora plants can be found in 

Appendices B and C respectively. 

 
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1.1.4 Infrastructure 

The City of Douglas is supplied electricity by the Arizona Public Service, which serves 690,000 

customers statewide. Current generating capacity is 4,022 megawatts (MW) and the current peak 

overall power system is 4,420 MW. Natural gas is supplied by the Southwest Gas Corporation. 

Water is supplied to the City of Douglas through 10 wells. The capacity is roughly 5.7 million 

gallons per day (MGD) (21.6 million liters per day (MLD)) in the summer. Average demand is 2.6 

MGD (9.8 MLD) and peak demand is 3.8 MGD (14.4 MLD). The average pressure of the system is 

65 lbs (29.5 kg). 

The City of Douglas has its own wastewater treatment plant. The treatment process uses extended 

aeration activated sludge. Secondary treatment is done through filtration/disinfection. The capacity 

is 2.7 MGD (10.2 MLD) and average demand is 1.4 MGD (5.3 MLD). Peak demand is 2.2 MGD 

(8.3 MLD). 

The City of Agua Prieta is supplied electricity by the Mexican Federal Electricity Commission 

(CFE). The construction of a new 339.3 megawatt combined-cycle electricity generation plant is 

scheduled for the beginning of 2002. The plant will generate electricity using natural gas as a 

primary fuel and diesel gas as a secondary fuel. The plant will be expanded over five phases, the 

final phase ending in 2008 with a total generating capacity of 1,275.3 MW. The plant will be located 

8.7 miles (14 km) southwest of Agua Prieta on state highway 12 in El Fresnal. 

Water is supplied to the City of Agua Prieta via 11 wells of potable water in the city. In addition, 

there are also 4 elevated tanks and 2 ground level tanks of potable water. 

Wastewater generated by the population of the City of Agua Prieta is collected and routed via a 

drainage system to the exterior of the city for treatment. The treatment process consists of primary 

treatment ponds. 

1.1.5 Cultural Significance

A common culture reinforces the close relationship between the two communities of Douglas and 

Agua Prieta. Mexican culture is central to the lives of residents on both sides of the border, as 

demonstrated in the food, customs, and social ties. Roughly 80 percent of the population of Douglas 

is bilingual, of which the majority is of Mexican decent. 

1.2 Authority

This plan was developed in accordance with the following federal statutes and agreements for both 

countries. 
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1.2.1 Laws and Statutes 

Comprehensive Environmental Response, Compensation, and Liability Act (CERCLA) of 1980, 42 

U.S.C. '' 9601 et seq.

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.

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

1998). 

Law No. 104 on Ecological Balance and Environmental Protection for the State of Sonora 

(Published December 3, 1991).

1.2.2 Regulations 

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

Contingency Plan (2000). 

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

Response (2000). 

Bylaws of the Secretariat of the Environment and Natural Resources (Published July 4, 2001). 

Bylaws of the General Law of Ecological Balance concerning Hazardous Waste (Published 

November 25, 1998). 

1.2.3 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. 

1.3 Other Applicable Contingency Plans

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

this plan. 
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1.3.1 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). 

Joint United States of America - United Mexican States Contingency Plan for Accidental Releases of 

Hazardous Substances along the Border (1988). 

The Joint Response Team (JRT) is an entity authorized by Annex II of the La Paz Agreement to 

undertake emergency actions to respond to accidental oil and hazardous materials spills along the 

62.2-mile (100-km) wide area on either side of the U.S.-Mexico border, and to coordinate 

international hazardous materials substance preparedness and response activities in this area. The 

JRT developed the JCP to respond to spills requiring international coordination between the United 

States and Mexico. 

1.3.2 United States Contingency Plans

1.3.2.1 Local and Regional Plans and Mutual Aid Agreements

City of Douglas, Arizona Emergency Operations Plan (revised: February, 1998). 

This plan covers emergency operation procedures with regard to major fires, flood warnings and 

evacuations, winter storms, hazardous materials, earthquakes and landslides, and war related 

sheltering and crisis evacuation. It contains sections covering: direction and control, law and order, 

fire services, emergency medical and health, evacuation, shelter, recovery, and mitigation, and 

emergency response vehicle resources. The plan is currently being revised. 

Cochise County and State of Arizona Hazardous Materials Response and Recovery Plan 

(revised: June, 1991). The purpose of this plan is to provide emergency responders, affected 

facilities, government agencies and the public with the necessary background data, operating 

procedures, and organizational responsibilities to more effectively plan, respond, and recover from 

hazardous material spills, fires, explosions, or other incidents.

1.3.2.2 State of Arizona Plans

The State of Arizona Emergency Response and Recovery Plan (February 1998) addresses the 

consequences of any emergency or disaster where there is a need for state response and recovery 

assistance. The plan describes the methods that the state will use to assist local jurisdictions, 

mobilize resources and conduct cost recovery activities. 

The State of Arizona Hazardous Materials Response and Recovery Plan is a component of the above 

plan. It provides emergency management for a state response to a hazardous materials incident. The 

plan was developed by the Arizona Division of Emergency Management and the Arizona 
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Emergency Response Commission and gives an overview of the roles and responsibilities of various 

state agencies. 

1.3.2.3 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 2000). 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, and Nevada. 

 1.3.3 Mexico Contingency Plans

 1.3.3.1 Local and Regional Plans and Mutual Aid Agreements

Contingency Plan for the City of Agua Prieta (revised 2000). The Contingency Plan for the City of 

Agua Prieta was developed by Civil Protection for the Municipality of Agua Prieta, Sonora. The plan 

employs the participation of various agencies in responding to emergency situations, and provides 

the contact information of the responsible personnel in the municipality, state, and federal 

governments. It also includes the locations and contact information of businesses, schools, shelters, 

and hospitals in the area. The plan contains maps noting vital areas such as water sources, drainage 

and treatment facilities, transportation lines, and gas stations. 

 1.3.3.2 State of Sonora Plans

State of Sonora Civil Protection Plan (1998). This plan describes protocols for Civil Protection in 

the event of a natural disaster. Specific guidelines and procedures are established for hurricanes, 

fires, droughts, and frosts. 

The State of Sonora, Mexico Catalogue of Hazards (1992) has been compiled by the State of Sonora 

and the State Unit of Civil Protection. 

 1.3.3.3 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 
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mandatory by law in Mexico; however, Civil Protection strongly recommends each state and 

municipality have one. 

National Contingency Plan (Protección Civil). (2000). This Plan was developed by the General 

Directorate of Civil Protection of the Mexican Federal Government. It follows a model similar to 

that of Civil Protection plans at the state and local levels. This is Mexico=s primary plan in the event 

of a disaster. This plan is updated annually. 

National System for Civil Protection Plan. (2000). The Mexican Federal Government (Secretaria de 

Gobernación) developed the National System for Civil Protection for responding to all disasters 

including releases or spills involving oil or hazardous material throughout Mexico. The current plan 

outlines Civil Protection operations from 1995-2000. This plan is updated annually. 

Plan DN III-E: Civilian Population Assistance. (2000). This plan, established by the Mexican 

Secretariat of National Defense, outlines the role of the Mexican Army and Air Force in the event of 

a catastrophic incident. This plan is updated annually. 

Manual of Emergency Attention for Hydroecological Emergencies Related to Continental National 

Waters. (2000). Civil Protection would implement this plan in the event of a flood, hurricane or 

other severe storm. This plan is updated annually. 
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2.0 HAZARDS ANALYSIS AND RISK REDUCTION

Critical to emergency response and preparedness is an analysis of the hazards posed in the plan area 

and measures to reduce the risks from these hazards. This section identifies hazards and analyzes 

vulnerable human and environmental resources and associated risks. This section also addresses the 

jurisdictions= commitment to reduce the risks from these hazards. 

2.1 Businesses Using, Handling, or Storing Hazardous Materials (Fixed Facilities) 

A discussion of fixed facilities and their hazards is presented here. A listing of fixed facilities using, 

handling or storing hazardous materials in Douglas, Arizona is provided in Appendix B. 

2.1.1 Douglas, Arizona

In the United States, under the Emergency Planning and Community Right-to-Know Act (EPCRA), 

most facilities that use large and/or toxic quantities of hazardous materials are required to file 

chemical inventory reports with their local and state emergency response agencies. EPCRA requires 

those facilities which have on-site, at any one time, 10,000 pounds (4,536 kg) or more of a 

AHazardous Chemical@ (as defined by OSHA Hazard Communication Regulations), or any amount 

over a Athreshold@ level of an AExtremely Hazardous Substance@ (EHS) to file a chemical inventory 

report. OSHA defines a AHazardous Chemical@ as any chemical which is either a health hazard or a 

physical hazard. Material Safety Data Sheets must be prepared for such chemicals. Hazardous 

chemicals or EHSs present in quantities that do not exceed the reporting threshold may be required 

to be reported when the Local Emergency Planning Committee determines that the information is 

important for emergency response preparedness. 

In Douglas, businesses submit their chemical inventory reports to the Arizona Emergency Response 

Commission (AERC), the Cochise County Local Emergency Planning Committee (CCLEPC), and 

the Douglas Fire Department. Twenty-six facilities have submitted their chemical inventory reports 

in Douglas. These reports are available to the public. A listing of these facilities and the chemicals 

reported can be found in Appendix B. Although some businesses may have hazardous substances 

on-site, they may not be required to provide chemical inventories under EPCRA. These businesses 

are also included in Appendix B. 

There are 26 businesses and other industrial facilities in Douglas that submitted chemical inventory 

reports: 

Five of these businesses provide import/export services. Chemicals commonly handled include 

isopropanol, slurran (explosive), sodium ferro cyanide, phenylenediamines (poison), methyl ethyl 

ketone, and paint/thinner. 

There are three large retail companies that handle hazardous materials. These materials include 

paints, solvents, and fertilizers. 
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Two facilities sell wholesale oxygen, one of which also sells propane. 

There is one principal chemical supply company located in Douglas. The chemicals sold in this 

facility include: calcium carbonate, petroleum core, bituminous coal, calcium oxide, lime kiln dust, 

magnesium chloride, ammonium nitrate, #2 diesel fuel, and sulfuric acid 93%. 

There is one electronics manufacturing facility located in Douglas. The hazardous materials utilized 

at this facility include solder flux and isopropanol. 

Thirteen service stations submitted chemical inventories. Chemicals used in these facilities include 

diesel fuel, insulating oil (electrical), unleaded gasoline, Mobil DTE - 797, motor oil, and other 

flammables. 

The electric utility service station handles sulfuric acid, battery electrolyte, and diesel fuel. 

2.1.2 Agua Prieta, Sonora

Maquiladoras are the main industry in Agua Prieta. Maquiladoras utilize competitively priced 

Mexican labor in assembly, processing and/or other manufacturing operations. Most component 

parts are temporarily imported from the United States or other countries. Mexican law also allows 

these operations to bring in most capital, equipment and machinery from abroad. Maquiladora 

operations are generally labor-intensive, with most productions geared for export from Mexico. 

Maquiladoras may be entirely foreign (U.S.) managed and 100% U.S. owned, unlike other multinationals operating in Mexico. 

The Mexican government created the Maquiladora Program in 1966 to generate employment, to 

augment the Mexican trade balance and to promote technology transfer. This program evolved far 

beyond its original focus as a regional growth strategy, and is now Mexico's largest non-petroleum 

industry, producing more than half of all exports. In 1975, maquiladoras employed 67,214 workers 

in 454 plants, generating US$1 billion worth of goods. By 2000, six years after the implementation 

of the North American Free Trade Agreement (NAFTA), the number of maquiladora plants 

operating in Mexico reached 3,500, employing 1.3 million workers and generating more than US$57 

billion in annual exports. 

Approximately 21 maquiladoras and other industrial facilities currently operate in Agua Prieta, 

Sonora (Refer to Appendix C). 

Four of the facilities identified in Agua Prieta, Sonora assemble or manufacture clothing or other 

textile products. Chemicals typically used in the manufacture and finishing of textiles include 

formaldehyde, metallic salts (such as zinc nitrate and magnesium chloride), glyoxal, organometallic 

compounds, zinc acetate with peroxide, and chlorine. 

Seven of the facilities manufacture or assemble electronic and electric appliances or materials and 

supplies used in electronic equipment. Acids commonly used as etchants in these processes include: 
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hydrochloric, sulfuric, glacial acetic, nitric and hydrofluoric. Use of other solvents and resins is also 

common. 

Three facilities manufacture brakes or other auto parts. Such facilities commonly use solvent-based 

paints and require the use of solvents to clean parts and equipment. 

Seven facilities manufacture products such as furniture, plastic, and artesanias. Chemicals typically 

used include solvents, solvent-based inks, isopropyl acetate, methyl ethyl ketone, and chemicals 

associated with the use of paints. Chemicals typically used in the production of plastics include 

phthalates, solvents, acids, and compounds of antimony, barium, chromium, cobalt, lead, 

manganese, and nickel. 

By law, hazardous wastes generated by U.S.-owned maquiladora operations must be returned to the 

United States for proper disposal. Almost no hazardous waste enters into the United States through 

the Douglas, AZ port of entry. 

2.2 Transportation Systems

Knowledge of chemical transportation is helpful in preventing and preparing for potential hazardous 

materials accidents. This section provides an overview of hazardous materials traffic in the plan 

area, and identifies additional data that should be collected and analyzed, such as that obtained in a 

commodity flow study. 

2.2.1 Douglas, Arizona

2.2.1.1 Roads

The major highway through Douglas, Arizona is Highway 80. Interstate 10 is 74 miles (119 km) 

from Douglas and extends from California to Florida. It is a major access route to southwestern 

markets in California, Nevada, Utah, Colorado, New Mexico and Texas. 

In July 2000, a four-line intersection was completed in Douglas. The four-line intersection realigns 

Highway 80 with North Pan American Avenue and connects G Avenue with U.S. 191B Douglas. 

2.2.1.2 Railroads

There are no railroads in Douglas.

2.2.1.3 Other Means of Transport

The Douglas Municipal Airport is located two miles (3.2 km) from the central business district in 

Douglas. This airport does not handle commercial traffic. 
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The Bisbee/Douglas International airport is located 8 miles (12.9 km) from Douglas. The State 

prison is also located at this site. 

2.2.2 Agua Prieta, Sonora

2.2.2.1 Roads

The main highways that run through Agua Prieta are the Federal Highway No. 15 

(Hermosillo-Nogales), Federal Highway No. 2 (Imuris-Agua Prieta-Janos, Chihuahua), and State 

Highway No. 2 (Agua Prieta-Nacozari). Highway 15 starts in Mexico City and runs through the 

states of Mexico, Michoacan, Jalisco, Nayarit, Sinaloa, passing through the southwestern and 

northern central regions of Sonora. Federal Highway 2 runs along the northern part of Sonora 

almost parallel to the border line, passing through San Luis Rio Colorado, Agua Prieta, and several 

communities in Chihuahua. 

A series of minor and state roads come off these highways. The State highways include the 

Hermosillo-Agua Prieta highway, which passes through Ures, Moctezuma, Cumpas, Nacozari de 

Garcia and Fronteras, and the state highway that begins in Cananea, which goes through Bacoachi, 

Arizpe, Banamichi, Aconchi, Baviacora, eventually joining the Hermosillo-Agua Prieta state 

highway at Mazocahui. 

The completion of a new highway from Ciudad Obregon to Agua Prieta is tentatively scheduled for 

December 2001. The purposed Obregon-Agua Prieta highway would direct commercial traffic from 

Nogales to the Agua Prieta-Douglas area. A new port of entry to the west of Douglas would be 

required to address the increase in imports from the mining, lumber, and cattle industries. 

2.2.2.2 Railroads 

A major rail line stretches from Nogales to Cananea and Naco, and from Agua Prieta to Nacozari de 

Garcia. This rail line handles the transportation of sulfuric acid and minerals such as copper and 

graphite, which are extracted from the mines. In the event of a major spill on this line, mutual aid 

requests may be initiated for Ambos Nogales and Douglas-Agua Prieta. 

2.2.2.3 Other Means of Transport

The natural gas transportation system for the private use of Mexicana del Cobre begins south of the 

US-Mexico border approximately 2.5 miles (4 km) west of the city of Agua Prieta ending at the 

foundry plant facility (La Caridad) and the lime plant. The system has three control/monitoring 

stations, 52 power shut-offs, and six sectional valves. In the case of a leak anywhere in the system, 

any of these sectional valves can be closed to stop gas from flowing to the location of the leak. 

The Municipal Airport of Agua Prieta offers connections to the International Airport Ignacio 

Pesqueira in Hermosillo, Sonora. This airport does not handle commercial traffic. 
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2.3 Ports of Entry

The Douglas, Arizona/Agua Prieta, Sonora Port of Entry is in operation 24 hours/day. Vehicles 

transporting hazardous materials may cross during the hours of 9AM and 2PM, and must provide 

notice to U.S. Customs 24 hours prior to crossing in either direction. Vehicles transporting 

hazardous waste in either direction are required to inform U.S. Customs 72 hours in advance. 

Roughly 2,278 pedestrians and 6,250 private vehicles cross the border into the US each day. On 

average 97 loaded cargo trucks head north into the US daily. Similarly, 68 loaded cargo trucks cross 

south to Mexico per day. Approximately 95% of the hazardous materials that cross the border is 

exported to Mexico. Seventy-five percent of these materials is transported to Cananea and Nacozari 

for use in mining operations. Common materials include petroleum distillates, acids, and alcohols. 

The remaining 25% of hazardous materials, consisting primarily of solvents and a smokeless powder 

charge, is used locally by the maquiladora industry in Agua Prieta. 

From west to east, there are six ports of entry along the Arizona-Sonora border: 

San Luis, Arizona/San Luis Rio Colorado, Sonora; 

Lukeville, Arizona/Sonora, Sonora; 

Sasabe, Arizona/Sasabe, Sonora; 

Nogales, Arizona/Nogales, Sonora (East and West Gate); 

Naco, Arizona/Naco, Sonora; and 

Douglas, Arizona/Agua Prieta, Sonora. 

Douglas accounts for an estimated 14 percent of all commercial traffic entering Arizona from 

Mexico. Table 3 shows historical and projected commercial traffic volumes for the Arizona ports of 

entry. 

Table 3

Arizona Border Ports of Entry - Northbound Commercial Loads

(Total commercial trucks not including empty container trucks)

Border Ports of 

Entry 1999 2000

2001 

(estimated)

Projected % 

Share 2001

Douglas 20,775 21,368 21,644 7.6

Lukeville 4,084 3,546 3,644 1.3

Naco 6,046 5,169 7,069 2.5

Nogales 196,128 197,531 220,553 78

Sasabe 2,381 2,775 2,400 0.8

San Luis 31,099 30,702 27,625 9.8

Total 260,513 261,091 282,936 100

Source: U.S. Customs OMR Data Warehouse, 9/01
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2.4 Sensitive Populations and Vulnerable Areas

As a part of a hazard analysis, the identification of sensitive populations and vulnerable areas is 

necessary. Available information is presented here. 

2.4.1 Douglas, Arizona

2.4.1.1 Sensitive Populations 

Parks and recreational facilities are interspersed throughout the City of Douglas. Though many are 

located in residential and non-commercial areas, some are located near or along main truck routes. 

Likewise, schools and religious centers can be found throughout the city. Other potential sensitive 

populations are the Southeast Arizona Medical Center, the prison, as well as the libraries and 

religious centers. Additional sensitive populations include the residential neighborhoods that border 

the main commercial traffic routes, and those near warehouses and brokerage houses. 

Refer to Appendix D for a listing of Sensitive Populations and Vulnerable Areas. 

2.4.1.2 Population Distribution

The commercial areas, industrial parks, light industry, and heavy industry are concentrated on the 

west side of F Avenue in the southwestern portion of Douglas. The residential areas are located 

principally on the east side of F Avenue and to the west of Highway 80 above Merritt Ave. Most 

commercial areas are not located within residential areas, with the exception of the following two 

general commercial zones: the first extends along A Avenue, and the second is located in the area 

between 8th and 13th Streets, and between Rose and San Antonio Avenues. 

The industrial and general commercial areas are located along Pan American Avenue (State Route 

191), heading north from the port of entry. The two industrial parks are located on Pan American 

Ave. The first is situated south of the Police Department, and the second to the northeast of the port 

of entry. The heavy industry in Douglas is located west of Pan American Ave. and south of West 

9th Street. The light industry extends west from Pan American Ave. to the Slag Dumps, and is 

bordered to the north by Highway 80 and to the south by the US-Mexico border. 

2.4.1.3 Sensitive Natural Resource Areas 

Located 17 miles (27.4 km) to the east of Douglas on the U.S.-Mexico border, the San Bernardino 

National Wildlife Refuge was established for the protection of endangered and threatened native 

fishes of the Yaqui River Basin. Situated at 3,720 to 3,920 feet (1,134 to 1,195 meters) elevation in 

the bottom of a wide valley, the refuge encompasses a portion of the headwaters of the Yaqui River, 

a major river system that drains into western Chihuahua and eastern Sonora, Mexico. The refuge 

consists primarily of desert grassland, Chihuahuan desert scrub and mesquite bosque, and supports a 

diverse riparian forest of Fremont cottonwood and black willow. Numerous ponds and cienegas are 
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also found on the refuge next to the artesian wells, which supply water to support the native fishes on 

the refuge. 

2.4.2 Agua Prieta, Sonora

2.4.2.1 Sensitive Populations 

There are 72 schools located in Agua Prieta, Sonora. There are more than 20 recreational and park 

areas throughout the city. Of these recreational areas, the following may be more vulnerable to 

environmental releases due to their proximity to industry and traffic: the baseball field on the corner 

of Avenida 6 and Calle 13, the soccer field on the corner of Avenida 17 and Calle 13, and the park 

located on the corner of Avenida 18 and Calle 17. 

2.4.2.2 Population Distribution

Agua Prieta=s industry is concentrated in the western section of the city. The two main industrial 

areas are located along the main road that extends south from the port of entry and in a rectangular 

area located between Calles 13 and 18, and between Avenidas 6 and 17. There are many small 

industrial areas located throughout the city=s residential areas. 

Residential and recreational areas are interspersed throughout the city and surround the majority of 

the industrial and commercial areas. The city=s newer residential developments are expanding to the 

south of the Carretera a Chihuahua. 

2.4.2.3 Sensitive Natural Resource Areas 

The flora and fauna found in the area of Agua Prieta are consistent with arid and semi-arid terrains. 

Predominant vegetation in the region includes desert brushwood as well as grazing land and 

pastures. The grazing lands and pastures, which surround three-quarters of the city, represent one of 

the region's most important natural resources, particularly for cattle raising. 

Brushwood makes up the other quarter of the surrounding area, predominately to the southeast of the 

city. The most common type of brushwood is spiny shrub locally called "mesquite","gobernadora", 

and "huisache". 

The soils in Agua Prieta have a very poor top layer of organic material and deep layers of clay, are 

hardly permeable, and have a high degree of expansion. The soils on the Agua Prieta riverbanks, 

however, are rich in organic materials and have a dark top layer suitable for farming. 

2.5 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. 
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2.5.1 Douglas, Arizona

All water delivered in the City of Douglas is groundwater from deep wells. There are presently 10 

deep wells that can produce high-quality water for public distribution. Hydrologic studies indicate 

that the water resources available to the City of Douglas are large, with active recharge from the 

Mule, Dragoon, and Chiricahua mountain ranges. Water stored in the sand and gravel beds of the 

Douglas Basin Aquifer is adequate to supply the needs of the city at current levels for centuries. The 

wells are widely separated to minimize risk of any potential local contamination or naturally 

occurring water quality problems. Total pumping capacity with all wells running is approximately 

5.7 million gallons per day (21.6 million liters per day). Each well has its own chlorination 

equipment that doses the water with 1 part per million of chlorine gas to provide protection from 

microorganisms. 

The City of Douglas recently expanded its wastewater treatment facility. The treatment process uses 

extended aeration activated sludge. Secondary treatment is done through filtration/disinfection. The 

capacity is 2.7 MGD (10.2 MLD) and average demand is 1.4 MGD (5.3 MLD). Peak demand is 2.2 

MGD (8.3 MLD). Treated water from the plant flows into Agua Prieta, for agricultural use. 

2.5.2 Agua Prieta, Sonora 

Potable water services are available to 95% of Agua Prieta=s population. The zones covered by the 

distribution network receive a constant supply of potable water. The southern part of the city lacks 

potable water. Water is supplied to this area through pipes provided by the City Council and by the 

Mexican National Secretary of Defense through the Army at no cost. 

The sewage treatment infrastructure of the City of Agua Prieta consists of a drainage system that 

collects and conducts the wastewater to the exterior of the city for primary treatment. The oxidation 

ponds were constructed between the years 1987 and 1992. 

Wastewater is piped to the oxidation ponds from the interior of the city. This pipe, last rebuilt in 

1987, starts near the intersection of La Via Ferrea Nacozari and the federal highway No. 2 ImurisAgua Prieta-Janos, Chihuahua. 
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2.6 Risk Reduction Opportunities and Recommendations 

Reducing risk to prevent a hazardous materials incident is a proactive approach to emergency 

planning. The Binational Emergency Planning Committee (BEPC) will look at a variety of 

mechanisms to reduce hazardous materials risks in the plan area. These include: 

$ Planning 

$ Identification and assessment of available resources 

$ Public and industry education and outreach 

$ Procurement and integration of equipment 

$ Building and fire codes 

$ Pollution prevention 

$ Traffic controls 

$ Hazard identification and risk analysis 

$ Training 

$ Exercises and drills 

$ Emergency response preparedness 

$ Compliance assurance/assistance 
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3.0 EMERGENCY RESPONSE ROLES AND RESPONSIBILITIES 

The adverse consequences of a chemical accident on the health, safety and welfare of the 

communities of Douglas, Arizona and Agua Prieta, Sonora may be reduced through timely and 

effective emergency response. This plan provides an integrated and coordinated binational response 

protocol to supplement the local emergency response plans in the event of a release of hazardous 

materials in the plan area. 

3.1 Notification 

Any release or substantial threat of a release of a hazardous material affecting or likely to affect 

another party shall be reported to that party without delay. The emergency notification list is found 

on page 5. 

3.2 Private Response Mechanisms 

Owners or operators of fixed facilities and transportation facilities, including truck lines, rail lines 

and pipelines, must comply with all local, state, and federal hazardous material planning and 

reporting requirements. An inventory of private emergency response resources should be conducted 

and included in this plan. 

3.3 Local Response 

3.3.1 City of Douglas, Arizona Mutual Aid Request 

In Douglas, the Fire Chief will assume the lead role as Incident Commander (IC). If the incident is 

beyond the control and/or capabilities of the Douglas Fire Department, or the incident might impact 

the border with Mexico, the Incident Commander will request activation of the Emergency 

Operations Center (EOC). A request for binational response will be made to the Director of Civil 

Protection in Agua Prieta, using a predetermined code to be shared only by the Douglas Fire Chief 

and the Director of Civil Protection in Agua Prieta. The binational response will involve requesting 

mutual aid from Agua Prieta. Both cities will notify their chains of command. 

Upon receipt of this mutual aid request, the Director of Civil Protection of Agua Prieta may respond 

by providing necessary action, information and/or assistance resources if possible. The scope of 

mutual aid will be determined by a Joint Command established between the Douglas Fire Chief and 

the Director of Civil Protection in Agua Prieta. The responding resources will report to the Incident 

Commander and work under the Incident Commander's direction. The Incident Commander is also 

responsible for ensuring that response personnel from Agua Prieta are utilized in an effective and 

safe manner by coordinating with the senior on scene response official from each responding agency. 

If the incident is beyond the capabilities of both cities, the Douglas Fire Chief will contact Cochise 

County and the State of Arizona to request assistance and/or initiate federal and/or Joint Response 

Team response. 
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3.3.2 City of Agua Prieta, Sonora Mutual Aid Request 

In Agua Prieta, the Director of Civil Protection will assume the lead role as Incident Commander 

(IC). If the Incident Commander feels that the incident will exhaust the resources available, or that 

the incident might impact the border, a request for binational response will be made to the Douglas 

Fire Chief using the predetermined code. The binational response will involve requesting mutual aid 

from Douglas, Arizona. Both cities will notify their chains of command. 

Upon receipt of this mutual aid request, the Douglas Fire Chief may respond by providing necessary 

action, information and/or assistance resources if possible. The scope of the response will be 

determined by a Joint Command established between the Douglas Fire Chief and the Director of 

Civil Protection in Agua Prieta. The responding resources will report to the Incident Commander 

and work under the Incident Commander's direction. The Incident Commander is also responsible 

for ensuring that response personnel from Douglas are utilized in an effective and safe manner by 

coordinating with the senior on scene response official from each responding agency. 

If the incident is beyond the capabilities of both cities, the Director of Civil Protection in Agua Prieta 

will request the Director of Civil Protection, State of Sonora, to initiate a federal and/or Joint 

Response Team response. 

3.3.3 Local Response Duties 

Local agencies are responsible for emergency planning and preparedness within their jurisdictions. 

The agencies are expected to assume lead roles during the emergency phase of the incident. Local 

agencies will conduct response activities within the scope of their department training and 

capabilities. Local agencies will provide emergency response services when possible, including, but 

not limited to: 

$ Notification 

$ Initial hazard identification 

$ Initial sampling to identify and determine concentrations of materials, if possible 

$ Communications 

$ Rescue and emergency medical service 

$ Fire fighting 

$ Security (site perimeter, traffic, and crowd control) 

$ On scene liaison with other agencies and organizations 

$ Providing public information 

$ Evacuation and shelter 

Local government assignments in Douglas are generally shared among the Douglas Fire Department, 

Cochise County Sheriff=s Department, Douglas Police Department, Cochise County Emergency 

Services, emergency medical services, public works and the health department. Detailed roles and 

responsibilities of these agencies can be found in the City and County plan.
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When responding to requests for mutual aid, local response agencies from both sides of the border 

will adhere to their department=s standard operating protocols. At no time should personnel from 

either city be requested to perform duties outside their training and capabilities. Incident 

Commanders in both cities are familiar with the capabilities of the agencies available for response, 

and will use the personnel from the agencies in an appropriate manner. If concerns arise, the 

Douglas Fire Chief and Civil Protection Joint Command will be notified and an appropriate decision 

will be made at that level. 

3.4 State Response 

The State of Arizona can provide assistance for hazardous materials incidents to Douglas and Agua 

Prieta if the responsible party and local capabilities or resources prove to be insufficient, incapable 

or inadequate. The Arizona Department of Environmental Quality (ADEQ) will appoint a State On 

Scene Coordinator (SOSC) who will assist the Incident Commander by providing and overseeing 

needed State resources. 

In Sonora, Civil Protection in Agua Prieta notifies Civil Protection at the State of Sonora level when 

an incident occurs. If necessary, Civil Protection at the state level will respond with appropriate 

resources. 

3.5 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 

Douglas, Arizona area, the Federal On Scene Coordinator will be from the U.S. EPA Region IX, 

headquartered in San Francisco, CA. 

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, 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 which 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. 
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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 Agua Prieta, Sonora, 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. 

3.5.1 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 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. 

3.5.2 Civil Protection 

The National System of Civil Protection has established, in each federal and municipal entity, civil 

protection organizations to handle emergencies occurring in each jurisdiction. Civil Protection has 

prepared the AANEXO III - Plan de Respuesta a Emergencias con Materiales Peligrosos@ (Annex III 

- Hazardous Materials Response Plan). This plan is designed to be used by all entities in Mexico to 

aid in developing contingency plans for hazardous materials incidents. 

3.6 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 
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$ Evaluate and make recommendations concerning the measures taken by the 

Federal On Scene Coordinator 

$ Provide continuing advice to the Federal On Scene Coordinator 

$ 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 US-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 On Scene 

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. 
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4.0 INCIDENT RESPONSE OPERATIONS AND RESOURCES 

This plan employs the phases of operational response to an incident as outlined in the Joint 

Contingency Plan. 

 4.1 Discovery and Notification 

Upon the discovery of a hazardous materials release or threatened release within the City of 

Douglas, a notification is made to the appropriate emergency organization. The initial notification 

will involve calling 911 to notify the Douglas Fire Department. The agency receiving the initial 

contact will follow the Douglas Fire Department=s standard operating protocol for the notification of 

all other appropriate agencies. The responsible party (RP) is also required to notify appropriate 

federal and state agencies by contacting the National Response Center and other state and local 

agencies depending on the substance released. These agencies will also notify appropriate local, 

state, and federal agencies. 

For Agua Prieta, the responsible party is required to call 060, Civil Protection and the Fire 

Department. 

Binational agreements between the Governments of the United States and Mexico require that the 

countries notify each other in the event of a release or substantial threat of a release of a hazardous 

substance, pollutant, or contaminant affecting or likely to affect the other country (Joint Contingency 

Plan Sections 105.3 and 301). 

4.2 Preliminary Assessment and Initiation of Action 

The first official on the scene will assume the role of Incident Commander. This duty will be 

relinquished to the appropriate official upon that person=s arrival at the incident. All agencies report 

to the established Incident Commander for all response and recovery operations. Each agency will 

provide its own special equipment and reference data, and will function within its field of expertise. 

If an incident exceeds the resources of the local or county agencies, command may be transferred to 

the more appropriate responding agency. This function may also be transferred to the Federal On 

Scene Coordinator, if a federal or JRT response is activated. 

4.2.1 Preliminary Assessment 

Upon confirmation that an incident may impact the other side of the border or may involve the 

release of hazardous materials, the Fire Chief of Douglas or the Director of Civil Protection for Agua 

Prieta will assume the role of Incident Commander. The first official on the scene assumes the role 

of Incident Commander until the designated senior official arrives to coordinate the response. 
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36 November 9, 2001 

4.2.2 Initiation of Action 

Upon arrival on scene, the predesignated Incident Commander will implement the following actions: 

$ Relieve the first official on-site 

$ Establish an Incident Command Post (ICP) and implement the Incident Command 

System (ICS)

$ If the incident threatens the border or the cities of Douglas, Arizona or Agua Prieta, 

Sonora, the Incident Commander will ensure that the appropriate notifications are made 

to the Joint Response Team, and if mutual aid will be required, ensure that the proper 

notifications are made to implement a binational response. 

4.3 Containment 

The Incident Commander will implement appropriate measures to contain, restrict, reduce or 

eliminate the release or threat of release of hazardous materials at the incident, as well as 

downstream or downwind from the site. This includes defensive action to prevent, minimize, or 

mitigate an incident to protect public health and the environment. 

4.4 Documentation and Cost Recovery 

All actions taken during hazardous materials incidents will be carefully documented so that 

sufficient and accurate information is available to support response and recovery operations and to 

recover costs, if applicable. Documentation should be self-descriptive to prove the source and 

circumstances of the incident, identity of the responsible parties, and impact or potential impact to 

public health and the environment. Documentation may be written, graphic, audiovisual, or in other 

form and will include the location of the incident, time, date and duration of the spill, source and 

cause of the incident, name and contact information of the responsible parties, description of the 

released material, resources affected or threatened, status of response and cleanup efforts, and 

accurate accounting of public costs incurred. A notification form is provided for this purpose on 

page 7. 

Examples of other forms of documentation of hazardous materials incidents include: 

$ Daily or personal logs in bound notebooks, to record all relevant response activities for 

evidentiary purposes 

$ Photographic documentation at the source of the release, pathway of discharge, and 

affected biota 

$ Samples of released material and material from the suspected source collected according 

to established chain of custody procedures 

$ A statement of witnesses identifying the source of a release 
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4.5 Evacuation or Shelter-In-Place 

It is the responsibility of the Incident Commander to assess the hazardous materials release or 

potential release. If there is a threat to the public, immediate action needs to be taken for their 

protection. Actions which protect the public include first aid, search and rescue, designation of an 

exclusion zone, shelter-in-place, fire suppression and evacuation. 

If evacuation is necessary, the Incident Commander will determine the area that will require 

evacuation. The Incident Commander is also responsible for estimating the number of people in the 

evacuation area and number of people needing transportation assistance. The Incident Commander 

will follow all the appropriate standard operating protocols outlined in local plans. 

The Incident Commander will coordinate with law enforcement to identify major evacuation routes 

and establish traffic control points. Law enforcement will establish evacuation assembly points, 

monitor traffic flow on evacuation routes and establish security patrols and access control 

procedures. In a toxic environment, agencies with more appropriate protective clothing and 

equipment may be called upon to perform these tasks. 

If the incident is of sufficient magnitude that the potential for a cross border evacuation exists, the 

Incident Commander will work closely with the appropriate border agencies such as Immigration 

and Customs authorities. 

4.6 Post-Incident Management 

The Incident Commander, or a designated replacement, is required to remain on scene until the 

immediate danger to public health and the environment has been abated. Primary responsibility for 

the actual cleanup and restoration costs will remain with the responsible parties. In the event that the 

responsible parties are unknown, cleanup is the responsibility of the parcel manager, the lessee, the 

land owner, the affected jurisdiction, the county agency, the state agency, or the federal agency 

having jurisdiction.

Cleanup and disposal of the spill should be accomplished as soon as possible. Prompt action is 

important to minimize damage to the environment. The first step is to establish the cleanup priorities 

at the site. Once the priorities are set, determination of appropriate cleanup methods is necessary. 

The cleanup actions must be constantly monitored to ensure the cleanup priorities are being properly 

addressed. 

Evaluation of the cleanup to determine its effectiveness is necessary. The evaluation process should 

assess impacts on the habitat and organisms, effectiveness of removal, public concerns, aesthetics, 

and costs. The Incident Commander must develop criteria to determine when the cleanup is 

complete, using applicable or relevant and appropriate requirements. The Incident Commander will 

ensure proper transportation and disposal of hazardous substances in compliance with local, state 

and federal laws. 
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4.7 Response and Cleanup Funding Availability 

The Incident Commander will attempt to identify and have the party accountable for the release 

assume responsibility for containment, removal and disposal. In Mexico, this will be the 

responsibility of the Civil Protection authorities in accordance with the National Protection System. 

If it is determined that the responsible parties are not acting promptly, taking or proposing to take 

appropriate actions, or if the responsible parties are unknown, state and federal funds may be made 

available to ensure proper cleanup. 

The State On Scene Coordinator or the Federal On Scene Coordinator may make funds available. 

Depending on the circumstances, money may be made available from one or more of the following 

funds. 

4.7.1 State Funds 

The State of Arizona and the State Water Quality Assurance Revolving Fund (WQARF) maintain 

funds that can be used for the response to hazardous materials incidents. These funds are available 

on a case-by-case basis, generally for incidents for which a responsible party has not been identified, 

or when there is an immediate threat to life and health. 

The Arizona Department of Environmental Quality also administers a fund to reimburse local 

government or political subdivisions for hazardous materials responses. 

4.7.2 Federal Funds 

The U.S. EPA administers the Hazardous Substance Response Trust Fund (Section 1.2.1 above, 

Comprehensive Environmental Response, Compensation and Liability Act) and the Local 

Government Reimbursement Program. 

As part of the Oil Pollution Act (OPA) of 1990, states are given access to federal funds for the 

immediate removal, mitigation, or prevention of a discharge, and may be reimbursed by the trust 

fund for removal and monitoring costs incurred during oil spill response and cleanup efforts, which 

are consistent with the National Contingency Plan (NCP). 

In Mexico, if the responsible party for the release is not located or does not pay, a remediation 

program is administered by the Office of the Federal Attorney General for Environmental Protection 

(PROFEPA). 

4.8 Communications 

Communications will be established pursuant to the local municipal standard operating protocols. In 

the event of a binational response, communications must be effectively established as soon as 

possible. 
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Due to the numerous radio frequencies used by the various response agencies in the plan area, the 

Incident Commander must define a primary response channel or rely on cellular communications. 

Appendix A provides a listing of the various phone numbers available. Communications between 

the Agua Prieta command and the Douglas command must be established and maintained throughout 

a binational response. This will ensure a secure and reliable flow of information between the two 

commands. 

4.9 Health and Safety 

The Incident Commander will be responsible for appointing a Site Safety Officer (SSO) for the 

incident. The Incident Commander and Site Safety Officer will be responsible for developing and 

implementing a Site Safety Plan to ensure the health and safety of all response personnel. For 

response across the border, the Incident Commander and senior official of each response agency will 

ensure that the appropriate state and federal worker health and safety laws of their country are 

observed while in the neighboring country. 

4.10 Response Resources 

The Douglas, Arizona Fire Department has 25 full time staff, including fifteen that are trained as 

firefighter/EMT and four that are trained as HazMat first responders. The department also has four 

fire engines, four ambulances, one rescue vehicle, and one support vehicle in addition to other 

equipment. In the event of an extreme emergency, the Douglas Fire Department has made 

arrangements with the Sunnyside and Pirtleville Fire Districts to provide resources if necessary. 

Emergency response efforts for the City of Agua Prieta are coordinated by the local Civil Protection, 

in cooperation with the volunteer fire department, the Red Cross, and the Municipal and State Police. 

The National Emergency Commission has 40 persons trained as emergency responders, including 15 

in firefighting and 20 in hazardous materials. 

A list of response resources for both cities can be found in Appendix I. 
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5.0 TRAINING AND EXERCISES 

This plan, written pursuant to the U.S.-Mexico Joint Contingency Plan, is an administrative 

summary of the relevant hazardous materials emergency response plans which have jurisdiction 

within the planning area. Each of the operational plans referenced requires training and exercising to 

ensure that responders are always in a state of readiness. The concepts and resources for binational 

training and exercising are important to emphasize as binational relationships and activities develop. 

Preparing 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. 

5.1 Training 

Individual organizations are responsible for their own training. Internal binational 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 response 

operations that they may perform. This training must comply with all applicable local, state, and 

federal worker health and safety regulations. 

5.2 Exercises 

Local and regional hazardous materials contingency plan exercises are encouraged, as they are the 

best means of keeping the plans current and active. Douglas, Arizona and Agua Prieta, Sonora 

routinely conduct joint exercises that allow for cross training of personnel. This ensures that 

deficiencies in response activities are identified. To keep this plan current, the plan will be exercised 

annually. 
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42 November 9, 2001