Interior Repatriation Program Evaluation – Joint Repo
U.S. – Mexico Repatriation Technical Working Group
Interior Repatriation Program Evaluation – Joint Report
Objective:
During the summer of 2004, Mexico and the United States designed and administered a repatriation program to reduce the loss of migrant life in Arizona-Sonora by safely returning Mexican nationals to their places of origin in the interior of Mexico.
Discussion of the Program:
This pilot repatriation program was developed in accordance with Article 5 of the Memorandum of Understanding (MOU) for the Safe, Orderly, Dignified and Humane Repatriation of Mexican Nationals signed by officials of both Governments on February 20, 2004.
The February 2004 MOU also established a binational Repatriation Technical Working Group comprised of high level officials of both countries. See Article 1(c). The Working Group developed a set of governing principles for the summer program. Local immigration and consular officials in Arizona – Sonora established procedures and logistical arrangements that were adopted by the Working Group and put into effect throughout the duration of the program. The Working Group also recommended evaluation criteria prior to commencement of the summer program.
The two governments operated the program from July 12 to September 30, 2004, and in these 81 days there were 151 flights from Tucson International Airport to the interior of Mexico. The U.S. Government funded these flights. Mexicana Airlines operated all flights, returning over 14,000 migrants who voluntarily participated in the program. At the beginning, the program operated daily one flight each to Mexico City and Guadalajara. By joint decision of the two Governments to curb inefficiencies, the Guadalajara flight was suspended on August 13. Starting on August 17, two daily flights to Mexico City operated until the completion of the program. Upon landing in Mexico, participants were provided bus transportation to a place close to their hometowns outside of Mexico City and Guadalajara. The U.S. Government funded this bus transportation. Participants received food on the flights and prior to boarding the buses.
The Government of Mexico allocated more officers, both, consular and immigration, in Arizona and Guadalajara and Mexico City in order to strengthen its ability to carry out the Program in an effective manner.
The Mexican and U.S. officers deployed an intense effort seven days a week during the development of the Program.
The participants were repatriated on 124 flights to Mexico City and 27 flights to Guadalajara.
The DHS and Mexican officials interviewed all migrants to confirm their eligibility and willingness to participate in the program. At the time of apprehension by the Border Patrol, DHS officials provided initial information about the program to non-criminal migrants who indicated their place of origin was in the interior of Mexico. Although at the beginning of the program potential candidates were not shown the information video prepared by Mexican authorities, this situation was solved and DHS officials showed to potential candidates an information video featuring a Mexican official as spokesperson. From the inception of the program, potential participants were limited to those apprehended by the Border Patrol in the Tucson Sector. However, on September 6th both Governments agreed to expand the program to include potential participants apprehended by the Border Patrol in the Yuma Sector. Consistent with the binational objective of the program, the expansion of the pilot program was attributable to the rising number of exposure-related deaths in the jurisdiction of the Yuma Sector.
The DHS officials transported all potential participants who expressed interest in the program plus those who were “at risk� to a facility in Tucson staffed by Mexican and DHS officials. Consistent with the governing principles, the two governments agreed to develop special procedures for exceptional cases, including elders, minors, pregnant women, dehydrated people, and injured people certified by medical personnel. The local DHS and Mexican consular officials agreed that medically trained DHS personnel would identify cases where migrants such as children, the elderly, the malnourished and crossers with blisters are at a heightened risk of physical harm either because of previous exposure to the elements or because of a particular susceptibility to the harsh climate. These risk determinations were documented in a medical evaluation form and presented to the Mexican officials for further review. In every single case, the principle of willingness was expressed before the Mexican authorities.
At the Tucson facility, Mexican immigration and consular officials explained further the program to the potential participants and interviewed migrants to establish Mexican nationality and reaffirm willingness to participate.
The Border Patrol apprehended and interviewed 96,723 potential participants in the Tucson Sector during the period July 12 – September 30, 2004. Nearly two-thirds of these candidates expressed no willingness to participate in the program and were no longer considered to be candidates.
The Border Patrol transported 31,135 potential participants to the facility in Tucson for interviews with Mexican officials.
In interviews with Mexican officials, fewer than 50% of those candidates indicated a willingness to participate in the program.
Of those who declined to participate in the program, 14,069 had been deemed “at risk� and treated by the Border Patrol BORSTAR (border search, trauma, and rescue) Teams.
All who declined to participate in the program were repatriated either through Voluntary Return (v/r) to the Arizona-Mexico border or through other removal mechanisms.
Effects of the Program:
The two governments entered into this historic bilateral effort to save migrant lives and ensure the safe, orderly, dignified and humanitarian repatriation of Mexican nationals.
In the case of the United States, there were no serious complaints of migrant abuse or other humanitarian concerns. The Mexican Government surveyed returning migrants concerning humanitarian conditions, finding seven individual cases where humanitarian principles were reportedly compromised.
Local border communities voiced no criticisms of the program. Based on available data, it is difficult to measure direct effects of the program on crime, effects of loitering, use of social services, etc.
Participants in the program were found to be in the United States in violation of immigration laws. Participants were given the option to voluntarily return to Mexico in lieu of formal immigration proceedings. As a result, participants incurred no legal consequence to a subsequent application for a visa or application for lawful admission to the United States.
To assess the effects of the program, it is important to answer the following questions:
Did the program provide a safe means to repatriate migrants? Yes.
The program offered the option of safely removing migrants from the dangerous Sonoran Desert and contributed to break the link between the aliens and their smugglers, thereby providing an alternative to the smuggling cycle.
Participants and potential participants received medical care by BORSTAR and medical care was available on each flight to the interior of Mexico.
All transportation vehicles were safe and in working order.
Did the program provide an orderly means to repatriate migrants? Yes.
DHS provided clear instructions to potential participants about where to check belongings during screening at the Tucson facility.
Queuing and seating at the Tucson facility was orderly and controlled.
Transportation to and from the Tucson facility was orderly and controlled.
DHS and Mexican officials maintained adequate personnel to ensure orderly processing with minimal delays. The periods of detention time were improved, specifically in Douglas.
Flights operated twice daily to avoid excessive waiting periods.
Bus vouchers were distributed to participants upon arrival of flights in Mexico.
Did the program provide a dignified means to repatriate migrants? Yes.
DHS and Mexican officials provided information to potential participants concerning the program, migrant rights, and consequences.
DHS provided interview space that met privacy needs for Mexican officials and potential participants to discuss the program.
Potential participants had access to sanitary facilities at the Tucson facility during processing, on board the aircraft and on the buses.
Potential participants were provided food and drink at the Tucson facility during processing, on board the aircraft, and prior to boarding buses.
Mexican officials provided change of clothing/shoes to participants, as warranted.
In instances where available, DHS officials provided toys (teddy bears) to children of potential participants.
In specific cases, Mexican officials from the INM escorted vulnerable migrants to their homes.
Did the program provide a humanitarian means to repatriate migrants? Yes.
There were no substantiated complaints of migrant abuse, separation of family members or loss of personal property.
Throughout the program, DHS officials took immediate action to address all concerns raised by Mexican officials about the process or facilities.
Potential participants had access to sanitary facilities at the Tucson facility during processing, on board the aircraft and on the buses.
Potential participants were provided food and drink at the Tucson facility during processing, on board the aircraft, and prior to boarding buses.
Did the program reduce loss of migrant life? Yes.
During the program, DHS recorded 14 exposure-related deaths in the Tucson Sector, as compared to 45 exposure-related deaths during the same time in 2003.
During the program, Mexico recorded 16 exposure-related deaths (including two unidentified bodies) in the Tucson Sector, as compared to 63 exposure-related deaths (including 23 unidentified bodies) during the same time in 2003.
Due to differences in figures, DHS and Mexican officials are reconciling, to the extent possible, their respective methodologies for recording migrant deaths and rescues.
Migrant deaths as a ratio of total apprehensions declined. While the total number of migrant deaths in the Tucson sector did not decline, the number of apprehensions increased over the same period in 2003. For example, the ratio for FY 2003 is equal to one death for every 2,498 apprehensions. The ratio for FY 2004 is equal to one death for every 3,488 apprehensions.
Migrant rescues also increased over the same period in 2003, showing further indication of increased activity in the area.
Bilateral Cooperation:
The program demonstrated strong, sustained US-Mexico coordination and cooperation at all levels of government. Political leadership from Mexico City and Washington provided the necessary support and will for the Working Group to define its recommendations and governing principles. The local DHS and Mexican officials in Sonora-Arizona jointly developed operational and logistical arrangements. Problems were identified and resolved bilaterally, including the joint decision to suspend the daily flight to Guadalajara and to expand the program to migrants apprehended in the Yuma Border Patrol Sector. Midway through the program, officials of both countries worked to perfect informational materials including audio messages and pamphlets.
The two Governments arranged for Mexican legislative officials to tour the Tucson facility and view the operation of the program. Similarly, the two Governments arranged for a tour of the Tucson facility by representatives of Mexican and U.S. media.
Ancillary Objectives:
Besides the primary, binational objective to save migrant lives, the United States and Mexico furthered other domestic objectives under the program.
In the case of the United States, the interior repatriation program served to break the smuggling cycle in the Arizona-Sonora corridor and supplemented other border safety efforts aimed at saving lives.
Additionally for the United States, the program was also an integral component of the DHS Arizona Border Control Initiative (ABCI) to bring greater operational control to areas of high traffic along the border with Mexico.
10% (1,360) of the program participants were arrested attempting re-entry into the United States during the IRP operation dates. This is much lower than the Tucson Sector’s average recidivism rate of 32% during the same period of time.
In the case of Mexico, this Program was an outcome of the bilateral cooperation based on mutual respect to the respective legal framework. The general principles, which ruled the Program, agreed bilaterally, were the key for a proper implementation, specifically the willingness of the potential participants.
The level of cooperation between officers of US and Mexico, at different levels, was also a key component. Our officials were able to conduct the program based on what the Technical Repatriation Working Group negotiated, and were also able to solve specific cases in a satisfactory manner for both parties.
Costs:
As set forth among the governing principles, the U.S. assumed the transportation costs for the program. In the case of the United States, the cost of the program was as follows:
Program costs: approximately $15,400,000.00.
$14.3 million for the air carrier contract (151 flights over 81 days)
$700,000 for the bus carrier contract
$350,000 for personnel (needed for transport and security)
$50,000 for Tucson Sector Staging Facility (retrofit of temporary staging site)
The average cost of the program was approximately $1,100 per alien.
Airfare averaged $1,044.55 per participant.
The bus transportation cost averaged $49.05 per participant (not all used bus vouchers as Mexico City is the hometown of many participants).
In the case of Mexico, personnel costs at the Tucson facility and at airports in Mexico to greet each of the 151 flights are as follows:
Expenses of SEGOB/INM:
Food for migrants upon arrival to Mexican territory: $340,000 pesos ($29,565 US dollars )
Plane tickets and per diem allowances for officials: $581,735 pesos ($50,585 US dollars)
Total: $921,725 pesos ($80,150 US dollars)
Expenses of SRE:
Total monthly assignments: $230,000.00 pesos ($20,000 US dollars).
Extra hours and miscellaneous payments: $272,090 pesos ($23,660.00 US dollars)
Payment to local employees: $293,250 pesos ($25,500 US dollars)
Expenses of consular officers based in Mexico City who participated in the operation of the Program: $859,740 pesos ($74,760 US dollars).
TOTAL: $1,655,080 pesos ($143,920 US Dollars)
Total expenses for the Government of Mexico: $2,576,805 pesos ($224,070 US Dollars)
