Mexico Case Study

Unedited Working Paper

Mexico Case Study

Analysis of National Strategies for Sustainable Development
This document is one of 19 country case studies that form the knowledge base for a synthesis report
entitled National Strategies for Sustainable Development: Challenges, Approaches, and Innovations Based
on a 19-country Analysis. The synthesis report and country case studies are available electronically at:

http://www.iisd.org/ measure/capacity/sdsip.asp
http://www.gtz.de/rioplus/download
June 2004

Notice to Reader
Information in the country case studies was obtained primarily from publicly available sources (e.g.,
Internet and literature sources) and, where possible, was supplemented through interviews with government
officials. The information was up-to-date as of May 2004. Every effort was made to ensure that official
national sustainable development focal point contacts had the opportunity to provide feedback on the
research, but such contacts were not successful in all cases. This case study is in an unedited, working
paper format.
These case studies are made publicly available to add to the national sustainable development strategy
knowledge base. The projects research partners accept responsibility for any inaccuracies or omissions.
The views expressed in this working paper do not necessarily represent the views of the funding partners.
The research partners welcome your comments on this country case study. Please e-mail comments to
Darren Swanson at dswanson@iisd.ca.

This National Sustainable Development Strategy research project is a collaborative

effort. Its research partners are the International Institute for Sustainable Development
(IISD), the Canadian consulting firm Stratos Inc., and the Environmental Policy
Research Centre of the Freie Universitt Berlin (FFU). The study has been funded by
Deutsche Gesellschaft fr Technische Zusammenarbeit (GTZ; commissioned by the
German Federal Ministry for Economic Cooperation and Development BMZ), the
Canadian International Development Agency (CIDA), Department of Foreign Affairs
Canada, and Environment Canada. Advisors to the project include IUCN The World
Conservation Union and the UN Commission on Sustainable Development.

Prepared by:
Stratos Inc.
Strategies to Sustainability
Suite 1404 1 Nicolas St.
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1

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Introduction: Country Description

Mexico is located in North America and is bordered by the United States, Belize and
Guatemala. Mexicos population is approximately 104.9 million people, and it has a
population growth rate of 1.43% (CIA 2003). Average population density is over 50
people per square kilometer (OECD 2003, p. 156).
Mexico came under Spanish rule for three centuries before achieving independence early
in the 19th century. The elections held in July 2000 marked the first time since the 1910
Mexican Revolution that the opposition defeated the party in government, the
Institutional Revolutionary Party (PRI).
Economy
Mexico has a free market economy with a mixture of modern and outmoded industry and
agriculture. Increasingly the economy has been dominated by the private sector with
many State-owned enterprises such as airlines and railways being privatized. Trade with
the U.S. and Canada has tripled since the implementation of the North American FreeTrade Agreement (NAFTA) in 1994. Mexico implemented free trade agreements with
Guatemala, Honduras, El Salvador, and the European Free Trade Area in 2001, putting
more than 90% of trade under free trade agreements (CIA 2003).
The countrys GDP is estimated at US $924.4 billion (purchasing power parity) with a
real growth rate of 0.7% and a GDP per capita of $8,900 (2002 est.). Mexicos
predominant industries by GDP include: 69% services, 26% industry, and 5% agriculture
(CIA 2003). The countrys primary financial asset since the 1970s has been petroleum,
with over 70% of Mexicos revenue coming from exporting petroleum to the U.S.
(Mexico Online 2004).
Mexicos 39.8 million labour force by occupation is 56% services, 24% industry, and
20% agriculture. The urban unemployment rate was 3% in 2002, however significant
underemployment is also prevalent (CIA 2003). Ongoing economic and social concerns
include low real wages, underemployment for a large segment of the population,
inequitable income distribution, and few advancement opportunities for the largely
Amerindian population in the impoverished southern states.
Society
Mexico is a federal republic consisting of 31 states and one federal district. The President
is both the chief of state and head of government and is elected by popular vote for a sixyear term. The House of Representatives is intended to represent the people, while the
Senate represents the 31 states and the federal district. Both houses of Congress propose
and pass laws, and the Senate is also responsible for ratifying Mexicos international
treaties and agreements (North American Commission for Environmental Cooperation
[CEC] 2003, ch. 1). Since the early 1990s, decision-making power has been gradually

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devolved to state and municipal governments. States and cities now make policy
decisions in key development areas such as the environment.
Spanish is the countrys official language, although there are various regional indigenous
languages. Mexicos human development index ranked 55th out of 175 countries in 2001
(UNDPa 2003, p. 238). Mexico ranked 13th in the human poverty index of 2001, and just
over 30% of the population is estimated to be living below the poverty line (UNDPb
2003, p. 245). The life expectancy at birth is 73.1 years (UNDPa 2003, p. 238). Mexicos
crime rate was 1.36 million recorded crimes in 2000 or 13.91 per capita (UNODC 2002,
p. 253).
Environment
Mexico has a total surface area of 1,972,550 square kilometers, or 1.3% of world land
area. It has 9,330 kilometres of coastline and a terrain that consists of high, rugged
mountains; low coastal plains; high plateaus; and desert, of which 13.2% is arable land
(CIA 2003). The countrys climate varies from tropical to desert.
Mexico is abundant in resources. It is the worlds greatest producer of silver, and also
produces zinc, lead, gold, mercury, coal and copper, timber and oil and natural gas. The
country is also rich in biodiversity and Mexico hosts about 12% of known terrestrial biota
and is one of the worlds 12 megadiverse countries (OECD 2003, p. 15). Mexico has
protected 10.2% of its total land area (World Bank 2003, p. 148) and has an
environmental sustainability index of 45.9 (ranked 92nd out of 142) (Yale & Columbia
2002, p. 3). Mexico is the worlds ninth greatest greenhouse gas (GHG) emitter. It is
responsible for 3% of the worlds total GHG emissions. In 2000 its contribution of
carbon dioxide (CO2) emissions was 370 million tonnes (3.8 tonnes per person) (OECD
2003, p. 195).
Mexicos major environmental issues include: Natural fresh water resources scarcity and
pollution; raw sewage and industrial effluents polluting rivers in urban areas;
deforestation; widespread erosion; desertification; serious air pollution in the capital and
urban centers along the US-Mexico border (EIA, 2003). In 2001, only 1.1% of the
Federal budgetary expenditure was spent on environment and natural resources (OECD
2003, p. 150).
Note on sources
Research sources for this report are a mix of government and non-government reports.
Much of the government-produced materials were in Spanish, limiting access. Some
planning documents, and speeches from the President, however, were used. OECD,
World Bank and CEC reviews were also used as primary reference materials.
Mexicos Profile by Selected Indicators
Indicator
Human Development Index (and ranking)
Human Poverty Index (and ranking)

Value
0.800 (#55)
8.8% (#13)

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Environmental Sustainability Index

GHG Emissions
GDP and GDP per capita

45.9 (#92)
370 million tones (3.8 tonnes per person)
$924.4 billion ($8,900 per capita)

Content of the National Sustainable Development Strategy

The 2001-2006 National Development Plan represents Mexicos main planning

instrument contains not only the governments principles but also its objectives and
strategies. It is the central document for the whole federal public administration and is
legally approved by Congress. The 2001-2006 National Development Plan establishes
sustainability as one of its twelve basis principles (Secretariat of Environment and
Natural Resources [SEMARNAT] 2001, p. 61). Sectoral programs from the different
Secretariats that also include sustainability elements support the Plan.
Mexicos approach can therefore be categorized as a cross-sectoral strategy related to SD
(National Development Plan) complemented by sectoral programs (National Program for
the Environment and Natural Resources).
Strategy Content
Mexico does not have a single, multidimensional sustainable development strategy but
does have other mechanisms in place that meet some of the requirements of a sustainable
development strategy. The National Development Plans are six-year programs
established by the Mexican President at the beginning of the presidential term. The Plans
are intended to provide systematic and coordinated economic, social, political and
cultural development.
The National Development Plan 2001-2006 contains strategies for the achievement of
objectives related to the environment and the promotion of sustainable development.
Unlike previous plans prepared under other administrations, the current plan provides
both, short- and long-term visions, that define the major challenges and characteristics
Mexico should hold in the forthcoming 25 years. Democracy, transparency, high quality
of life, leadership, dynamism, multicultural pride, human developing opportunities and
promotion of human rights as a fundamental value of coexistence, are some of the main
elements of this future vision (OECD 2003, p. 123).
Mexicos National Development Plan 2001-2006 has three main objectives:
1. Social and Human Development: improve the well being of the population,
develop education, ensure equity, and strengthen human capital and government
capacity;
2. Growth with Quality: develop the national economy, increase competitiveness,
promote balanced regional development, and create conditions for sustainable
development; and

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3. Order and Respect: improve co-operation among authorities, make progress

towards decentralization, fight corruption, govern with transparency, and
guarantee public security and justice (OECD 2003, p. 123 and 126).1
Every Secretariat develops a national sectoral program consistent with the Presidents
National Plan and based on its own long-term (25-year) strategic outlook. Sectoral
programs serve as policy guides, specifying goals and strategies in each sector to be
implemented during the next six years. Under the new direction of the National
Development Plan, the commitment of sustainable development is shared by the diverse
Secretariats and federal agencies in charge of the different sectors of economy. These
agencies are responsible for promoting sustainable development in their activities and
programs through specific actions and goals. The National Program of the Environment
and Natural Resources 2001-2006 is one of the major programs established to forward
the concept of sustainable development.
The vision of the National Program of the Environment and Natural Resources is to
promote new forms of participation by Mexican citizens to inform the policy-making
process for the environment and to maintain an active involvement in the protection of
natural resources and the environment generally.
The National Program of the Environment and Natural Resources promotes six main
goals:
Integrated ecosystem management - focus on watershed rather than political boundaries
in the management of water, land, air quality, forests and biodiversity;
Policy integration - sustainable development should be the shared responsibility of
Federal secretariats and agencies;
Environmental management - halt and reverse environmental contamination and
degradation of ecosystems;
Provision of environmental services - improve management of natural ecosystems and
ensure that those who benefit pay for these services;
Enforcement of environmental legislation - strengthen inspection and compliance; and
Public participation and transparency - publish environmental information and respond
to public demand for environmental protection (SEMARNAT 2001).
A number of strategic programs are explicitly identified, including:

Halting and reverting pollution of the systems supporting life (water, air and soil);
Halting and reverting the loss of natural resources;

The National Development Plan was not available in English and therefore further details of the Plans
content cannot be provided.

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Conserving ecosystems and biodiversity; and

Promoting sustainable development (SEMARNAT 2001, p. 72-73).

The National Program of the Environment and Natural Resources proposes action plans,
goals and strategies to effectively manage environmental issues and in many cases the
Program sets clear objectives and targets, some of which are time-bound (e.g.
SEMARNAT 2001, p. 64-67).
Coordination and Linkages with Other Strategies or Planning Processes
Under an article in the Constitution, the federal government is required to issue a
National Development Plan, including a section dedicated to environmental protection,
which must be adhered to by all programs that make up the Federal Public
Administration. Under this article, problems posed by environmental pollution and the
exploitation of natural resources are considered national priorities (OECD 2003, p. 123).
The National Program of the Environment and Natural Resource is the primary program
that prioritizes targets in key environmental areas but it also establishes links with the
environmental objectives and targets in ten national sectoral programs: agrarian reform
(including land tenure reform), agriculture (including rural development and fisheries),
economy (including industry, trade and mining), education, energy (including the
national oil and electricity companies), finance, health, social development, tourism and
transport (including communication).2 The Program to Promote Sustainable Development
in the Federal Public Administration represents an effort to co-ordinate public policies
towards sustainable development by including sustainable development targets and action
plans in sectoral planning. Presidential targets have been set for all secretariats,
including performance requirements in terms of environmental outcomes and public
administration (OECD 2003, p. 25 and 128).
This is the first time in the history of Mexico that the various Secretariats and federal
agencies have collectively assumed specific commitments related to sustainable
development. Each institution works together with the SEMARNAT to make the
principle of sustainability outlined in the National Development Plan a reality
(SEMARNAT 2001). The various sectoral programs address the three pillars of
sustainability.
Integration of Sustainable Development Principles
It has become increasingly evident in Mexico that development at the expense of the
environment and natural resources is no longer feasible. It is clear through various reports
and Presidential speeches that the Government of Mexico understands the importance of
integrating environmental, economic and social considerations and the need to consider
future generations. The concept of SD is specifically built into the Constitution and the
General Law of Ecological Balance and Environmental Protection (hereinafter Ecology
2

See the National Program for Environment and Natural Resources pp. 133-161 for a discussion of other
sectoral program commitments.

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Law), and therefore there is a legal driver for integrating sustainable development
principles into the plans and priorities of Secretariats and government agencies.

Institutional and Procedural Aspects of the National Sustainable

Development Strategy

3.1

Development and Institutional Aspects

The federal government is required to issue a National Development Plan under the
Constitution (OECD 2003, p. 123). The 2001-2006 National Development Plan was
adopted in 2001. It is then translated into a set of programs which serve as long-term
policy guides and are the basis for much of the public spending.
A key piece of legislation has also influenced the development of environmental and
sustainable development principles within the country. The Ecology Law was passed in
1988 and has been the foundation for environmental policy of the country.3 Article 15 of
the Ecology Law sets out nineteen broad principles that serve as the basis for national
environmental protection policies and goals. The most important goals established under
the Ecology Law are: the achievement of sustainable development and ecological balance
(Article 3 XIV).
The strategies that guide the countrys sustainable development are largely driven from
the countrys planning process. The Presidents Office has been a champion of
incorporating sustainability into the National Development Plan, but it is the Secretariat
of Environment and Natural Resources (SEMARNAT) that is the agency tasked with
ensuring the government meets its overall sustainable development objectives.
Mexico has been developing new mechanisms to promote institutional integration of
environmental policy, and the intent of these reforms was to centralize and streamline
federal policy-making related to natural resource management and environmental
protection in an effort to achieve sustainable development (CEC 2003, ch. 2).
The previous lack of integration in environmental and economic policies weakened the
countrys environmental management and kept it out of the strategic decisions on
development matters. As part of the governments approach to achieve greater
integration, since 2001, the Secretary (i.e. Minister) of SEMARNAT has been
represented on the three inter-ministerial commissions (Human and Social Development,
Growth with Quality, Order and Respect) of the Federal Executive Power that handle
federal priorities. This demonstrates that the environment is no longer a sectoral issue but
must be integrated into national priorities. SEMARNAT therefore plays a key role in
proposing alternatives that consider the environment in the economic and social planning
that takes place within these groups, as well as facilitating the integration among the
different sectors (SEMARNAT 2001, p. 93).
3

Go to http://carpetas.semarnat.gob.mx/dgeia/web_ingles/1.shtml#cap1 to see legislation.

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Institutional integration of environmental concerns, however, has not been achieved

consistently across all sectors. More integration has been achieved in sectors such as
energy and tourism, with less integration in others, such as agriculture, where various
agricultural and rural development programs have been designed and implemented with
little regard for environmental protection (OECD 2003, p. 122).
3.2

Participation Aspects

The Mexican Constitution establishes Box 1: Public Consultation Issues

the obligation to organize a democratic
planning system. The Planning Law Nineteen main issues were analyzed as part of the
National Program for the Environment and Natural
guarantees democratic participation in Resources public consultations, including:
the formulation of the National
Development Plan and its programs. The 1. Integration of public policies for sustainable
development.
process of public and open citizen
2.
Social involvement.
participation for preparing the National
3. Forests and jungles.
Development
Plan
included 4. Water.
comprehensive
consultations
with 5. Soil.
society through nine national citizen 6. Hazardous waste.
consultations dealing with important 7. Air quality.
issues,
such
as:
biodiversity, 8. Wildlife and biodiversity.
9. Ecological regulation of territory.
deforestation, pollution, desertification 10. Maritime-Terrestrial Federal Area.
and degradation of soil, besides the 11. Natural protected areas.
macro
issue
about
sustainable 12. Environmental legislation.
development. 6,213 participations of 13. Decentralized environmental management.
citizens were processed and analyzed 14. Inspection and surveillance of environmental
legislation compliance.
through
these
consultations 15. Environmental culture and education.
(SEMARNAT 2001, p. 18). Citizen 16. Climatic changes.
participation was also possible via 17. Natural disasters.
mailed surveys and the Internet. A total 18. Environmental research.
of 117,040 questionnaires were received 19. Environmental information systems.
(SEMARNAT 2001, p. 18)
by the Internet and mailed surveys. (The
Commonwealth Network of Information
Technology for Development [COMNET-IT] and UNESCO 2000).
As part of the sectoral program development process, each secretariat is required to
conduct consultations with citizens and other stakeholders to inform the development of
their program. Formulation of the National Program of the Environment and Natural
Resources 2001-2006 involved 125 citizens consultation sessions, with analysis and
incorporation of their contributions and comments on a number of environmental policy
issues (see Box 1) (SEMARNAT 2001, p.18). A brief summary of the stakeholder input
received is provided in the Program. In turn, the National Program of the Environment
and Natural Resources emphasizes public participation in SEMARNATs policy setting
and program implementation.

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Pursuant to the Ecology Law, SEMARNAT must establish Advisory Councils for
implementing and monitoring environmental policies that include the participation of
academics, NGOs, business, and local and federal authorities. These Councils are
advisory bodies responsible for advising, assessing and following through on
environmental policy. They can raise issues that would require SEMARNAT to address
as to illustrate a response to societys environmental policy demands (CEC 2003, ch. 6).
Citizen participation has been strengthened through such national, regional, state and
local Advisory Councils. Examples of SEMARNAT Councils include:

Consultative Councils for Sustainable Development

National Nongovernmental Advisory Council of the Cooperation Agreement
(NACEC)
National Water Advisory Council
Basin Councils
Advisory Councils on Protected Nature Areas
Etc. (CEC 2003, ch. 6).

As identified above, Mexico has a National Consultative Council for Sustainable

Development, with the participation of representatives from civil society, and the
business and academic sectors, both federal and state institutions, as well as
governmental and non-governmental organizations. Their role is to ensure participation
and shared responsibilities among the people in conserving, restoring and protecting the
ecological stability of the environment, and to establish mechanisms aimed to coordinate,
persuade and help reach consensus between the parties in environmental matters. The
Council was originally created in 1995 and consists of 66 members and is presided by the
head of SEMARNAT. Four Regional Consultative Councils for Sustainable Development
were also established to co-ordinate with state, regional and national organizations (The
National Councils for Sustainable Development [NCSD] Network 1999 and OECD 2003,
p. 127).
With the increased emphasis on decentralization that is taking place in the Mexican
government, an Office for Strategic Planning and Regional Development within the
Executive Office of President has also been created. This new structure aims to facilitate
policy-making processes where the federal government is no longer the only actor, as
well as facilitate interstate and intersectoral coordination (OECD 2002, p. 3). There is
increasing recognition that the transfer of responsibility to states and municipalities must
be accompanied by a transfer of resources (i.e. devolution of taxing authority), as well as
tools to enhance capacity building, transparency and accountability.
3.3

Monitoring Aspects

Beginning in 2002, as part of the Program to Promote Sustainable Development of the

Federal Public Administration, each Secretariat/Ministry must report to the President of
Mexico at the end of the year on progress in meeting its interim environmental targets.
Targets for the following year are then set accordingly. This hopefully will lead to the
issuance of a sustainable development report for Mexico, in which both the processes and

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projects that promote sustainable development will be documented alongside the barriers
and obstacles to sustainable development (OECD 2003, pp. 126-128).
On an annual basis the President presents a report to the Congress discussing the general
state of the countrys administration.
Individual Secretariats/Ministries have their own reporting mechanisms. Twice a year
SEMARNAT publishes a Report on the Outlook Regarding the Ecological Balance and
the Protection of the Environment (CEC 2003, ch. 5). The Secretariat also has a section
on its web site that identifies the major achievements of the year.4 The National Program
of the Environment and Natural Resources commits that the results of the Program will
be disclosed to society (SEMARNAT 2001, p. 172).
The quantity and variety of environmental
information
available
from
national
authorities
(e.g.
data,
indicators,
environmental accounting, Pollutant Release
and Transfer Registers) has progressed to an
Box 2: Information Management
Systems
Mexico has a National System of Environmental
and Natural Resources Information. This system
provides access to natural resources inventories, as
well as data pertaining to the monitoring of air,
water and soil quality, besides providing access to
scientific and academic reports and technical papers
on environmental issues. This system is to be
complemented with the National Accounts System
under the National Institute of Statistics, Geography
and Information. The National System of
Environmental and Natural Resource Information
has, until recently, been developing only isolated
systems for the analysis, formulation, execution and
assessment of environmental policies. These
systems operate independently, generally without
regard to compatibility or integration to enable
effective information sharing, processing, analysis,
transfer and reporting. These systems may be
accessed via the Internet (CEC 2003, ch. 5).

advanced stage, although statistics from

different agencies are not always consistent
and some gaps remain (OECD 2003, p. 27).
Mexico also recently introduced a new law on
transparency of government activities and
public access to information.It is difficult to
4

Box 3: Environmental Performance

Indicators
SEMARNAT has developed environmental
performance indicators that allow it to measure
the progress against committed goals.
Examples include:
1) Ecological GDP to measure the progress
towards sustainability.
[Ecological GDP = (PINE PIN)/PIN]
Where: PIN = GDP depreciation of capital,
PINE = PIN depreciation of natural capital

2) Indicators about the shortage and quality of

water resource.
[Shortage indicator = # overexploited
aquiferous/ total # of aquiferous; Quality
indicator = % of the volume of treated waste
water which complies 100% with the
environmental standards/collected water volume]

3) Indicators on forest resource.

[# recovered forest hectares/# lost forest hectares;
# forest hectares with a sustainable management
program/ # forest hectares unsustainably
managed]

4) Hazardous waste indicators.

[Tons of hazardous waste sustainably managed/
year]

5) Reintroduction and recovery of priority

strange species, threatened species or species
in danger of extinction.
[# reintroduced species/ year]

(OECD 2003, p. 97)

See http://carpetas.semarnat.gob.mx/comunicacionsocial/acciones2002principaling.shtml

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assess whether Secretariats/ Ministries face any consequences for failing to meet stated
goals and objectives. The National Program of the Environment and Natural Resources
discusses compliance only within the context of regulatory mechanisms to deal with
environmental infractions. It does not outline measures for addressing the failure to
comply with its own goals and objectives.
The application of strategic environmental assessment to planned policies appears to be
inconsistent. A strategic environmental assessment of the tourism sector in 2002 led to
the release of a pilot national Agenda 21 that proposes introducing a certification scheme
for tourist facilities (sustainable tourism award) partly based on environmental
performance indicators. Conversely, no strategic environmental assessment of transport
sector policies is carried out (OECD 2003, p. 141 and 144).
3.4

Implementation Aspects and Specific Initiatives

The Office of the President is ultimately responsible for ensuring the National
Development Plan is implemented. Each Secretariat is responsible for developing the
policies, programs and procedures necessary to meet the sectoral program commitments
that in turn support the National Development Plan. A variety of different instruments are
used to achieve the governments sustainable development objectives such as: law
reform, permit and user fees, ecological taxes, awareness and education programs, etc.
A number of law reforms have taken place that further the governments sustainable
development goals such as:

Federal Transparency and Access for Public Government Information Act - intended
to guarantee the right to access information kept by the executive, legislative or
judicial branches or by any state, especially with regard to public affairs; and

Sustainable Forestry Development Act - offers a new forestry model that will help to
curb illegal cutting and preserve and strengthen ecosystems.

The government can also use mechanisms such as user fees and administrative costs to
obtain sustainability objectives. As a means to promote environmental compliance,
Mexico is currently engaged in a pilot study in which water use and discharge fees are
waived when the permit holder installs certain clean technologies. Should the project
prove successful, it is possible that such fee waiving programs will be also implemented
in other areas of environmental protection legislation (CEC 2003, ch. 24).
Ecological taxes are also increasingly used in Mexico. According to the Mexican Health
Secretariat, more than a third of Mexicos disease burden is the result of environmental
factors, the most serious of which is air pollution (Energy Information Administration
[EIA] 2004). The government has recognized the severity of the problem and has
proposed innovative solutions such as incentives for using cleaner fuels and smog control
measures. Through the Secretariat of Finance and Public Credit ecological taxes on new

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automobiles have been incorporated, aimed at fostering technological up-dating of the

countrys fleet and thereby improving air quality (SEMARNAT 2001, p. 133).
Similar health issues are related to the lack of water and sanitation services. In relation to
GDP, Mexicos pollution abatement and control (PAC) expenditure rate (0.8% GDP) is
one and half times less than the average OECD country PAC expenditure (OECD 2003,
p. 218).5 Progress was made in 2003 as the federal budget for drinking water and
sanitation was 350 percent more than the previous year (Fox 2003). Access to basic
services such as safe water, basic sanitation and electricity remain inadequate however,
particularly in less-developed regions and poorer communities.
With the increased focus on decentralization of power to the states and municipalities,
local governments have been empowered to assume full responsibility for areas such as
urban planning and development6 and environmental services. The decentralization of
planning and environmental policy implementation has not been accompanied by
adequate capacity building at the state and municipality level. Decentralization of
environmental management to states and municipalities must be accompanied by the
devolution of powers to tax and charge for environmental services, as well as efforts to
build local administrative and technical capacity if sustainable development
commitments are to be met.
Given Mexicos environmental objectives, there is a financing gap:
insufficient Federal spending on environmental protection, limited
application of the user and polluter pays principles, the limited revenueraising ability of states and municipalities and low reliance on external
financing all explain Mexicos difficulties (OECD 2003, p. 18).
Box 4: Regional Development Plan - Plan Puebla Panam
One noteworthy initiative was the launching of a regional and sustainable development plan known as
the Plan Puebla Panam, resulting from recognition that the disparities between the south/south-east of
Mexico and the rest of the country have increased and that the problems afflicting the region have
spread to the countries of Central America. A joint development effort between Central America and
that region of Mexico is essential in order to improve the quality of life of the people of the region.
The objective of the Plan is to give the regions inhabitants access to a better quality of life. To that end,
it proposes a new model of regional development starting from the premise that development is not
development unless it involves the development of people, which envisages new public human
development policies (giving special attention to the overall development of indigenous communities
and peoples), poverty relief and promotion of productive investment and development, and strategic
investment in infrastructure (SEMARNAT 2001, p. 102).

Pollution abatement and control expenditures include water and wastewater. Statistics were calculated
using OECD statistics for the latest available year. Varying definitions can limit comparability across
countries.
6
Stemming from these reforms, a National Network of Cities Towards Sustainability has been established.

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Along with decentralization, another priority of the National Development Plan and the
National Program of the Environment and Natural Resources specifically considers the
needs and requirements of Indigenous Peoples and women (SEMARNAT 2001, pp. 106107). The creation of a National Commission for the Development of Indigenous People
in 2003 illustrated the importance of this issue and the need for cross-coordination among
parties. In the last two years, the federal budget for indigenous communities has grown
by 55 percent (Fox 2003).
Table 1 highlights some of Mexicos initiatives undertaken to implement sustainable
development.
Table 1: Selected Sustainable Development Initiatives
Initiative
Programs to combat
poverty

Outline
The Government has various programs to combat poverty, prominent among
them being the Program for Education, Health and Food (PROGRESA) and
the National Program for Microregions.
PROGRESA was designed to address the various causes of poverty through
an overall, ongoing and long-term approach, with the objective of reaching
all regions with concentrations of families living in extreme poverty so as to
improve their conditions with respect to food, health and education,
particularly women and children. The objective of PROGRESA is to reach
750,000 more families in 2001, bringing the total coverage to 3.2 million
families. The approach of PROGRESA is to provide structural assistance
rather than welfare. It seeks to enhance the basic abilities of the individual,
reinforcing the benefits of his or her own efforts (UN 2001). The program
reportedly now covers 4 million families with a current budget of
approximately USD 2 billion. It consists of income transfers to the rural
poor on the condition of usage of health, education and nutritional services
(OECD 2002, p. 5).
The objective of the National Program for Microregions is to address,
initially, 250 micro regions (of 5.5 million Mexicans), of which 3.4 million
are members of indigenous populations. The intention is to reach the most
marginalized municipalities with the objective of overcoming their poverty
and promoting their all-round development, focusing efforts and resources
for that purpose in a coordinated manner between the three branches of
government, with the participation of civil society (UN 2001).

Environmental Health
Action Program

Mexico has a relatively high incidence of illnesses that can be correlated

with environmental variables, especially among vulnerable groups (e.g.
children, pregnant women and the elderly). Such environmental variables
include access to safe water supply, access to basic sanitation, and exposure
to air pollutants or hazardous substances (e.g. lead). Mexico established an
Environmental Health Action Program and has set specific quantitative
targets to improve health (e.g. 15% reduction of average population
exposure to atmospheric pollutants; guarantee of access to safe drinking
water by 70% of the population; etc.). For some of these targets, however,
baselines are yet to be established (OECD 2003, p. 159). These targets are in
line with objectives adopted at the WSSD. The challenge is that Mexicos
expenditure on environmental infrastructure is among the lowest in the
OECD and is not keeping pace with needs. In 2001 there were 10.8 million
people without access to piped water supply (OECD 2003, p. 160).

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Environmental Education

The 2001-2006 National Development Plan includes a strategy to promote

environmental protection training, capacity building and social
communication, as related to environmental protection and sustainable use
of natural resources. The 2001-2006 National Program of the Environment
and Natural Resources emphasises environmental education, public
awareness and behavioural change. Numerous awareness-raising initiatives
exist. One example is a joint effort by the Ministry of Public Education and
SEMARNAT (through the Centre for Sustainable Development Education
and Training) to strengthen the national curriculums environmental and
sustainable development content. This initiative resulted in about one-third
of primary school teachers being trained in environmental education. Within
two more years all teachers will have received such training.

US-Mexico Border
Program

An innovative bi-national effort between the United States and Mexico to

manage natural resources and the environment of the border region. The
mission is to achieve a clean environment, protect public health and natural
resources, and encourage sustainable development along the border. The
Program brings together federal, tribal, state and local entities from both
countries to work collaboratively toward achieving set objectives. Five-year
objectives are identified for nine bi-national workgroups: (1) water, (2) air,
(3) hazardous and solid waste, (4) pollution prevention, (5) contingency
planning and emergency response, (6) cooperative enforcement and
compliance, (7) environmental information resources, (8) natural resources,
and (9) environmental health. Annual Implementation Plans are developed
that identify US and Mexico federal funding levels for a given year and,
based upon available funds, describe specific projects that will advance the
long-term objectives of the Program (US EPA 1999).

3.5

Summary of National SD Strategy

The table below summarizes Mexicos sustainable development strategic initiatives.

Table 2: Summary of Countrys National Sustainable Development Strategy
Aspects
Content of SDS
- Typology

Summary
-

Content

Linkages with other strategies

and planning processes

Development Aspects
- legal basis, state of process

Institutions, responsible
agencies

Decisions and negotiation

No national SD strategy - Cross-sectoral strategy related to SD (National

Development Plan) complemented by sectoral programs
National Development Plan and sectoral programs developed every six years
including goals, objectives and targets for incorporating sustainable
development into policies and activities
Directly tied to the countrys planning process and the National Program of
the Environment and Natural Resources establishes links with the
environmental objectives and targets of ten national sectoral programs
Under the Constitution, the government is required to present a National
Development Plan; the Ecology Law is the foundation of environmental
policy and makes environmental protection a priority
SEMARNAT is tasked with ensuring the government meets its overall SD
aims and is also the administrative authority responsible for most
environmental issues under federal jurisdiction
Consultative process

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External Support
Participation
- Coordination
-

Inter-governmental actors
Civil society, NGOs actors

Unedited Working Paper

National Consultative Council for Sustainable Development and four

Regional Councils and also the
State and municipal government representatives involved on Councils
National Development Plan and Sectoral Program consultative processes
involved active participation of the citizenry through consultations,
questionnaires, surveys, Advisory Boards and Councils
Individual Secretariats also encourage social participation through various
mechanisms

Monitoring, Reporting and

Adaptation Aspects
- Responsibilities & Mechanisms

Compliance mechanisms

Learning and Adaptation

Application of Strategic
Environmental Assessment
Implementation Aspects
Responsibility and
coordination

Financing and capacity

Communication

Specific SD Initiatives

Secretariats report progress annually against objectives and targets to the

President; a Presidential report is tabled yearly; SEMARNAT publishes twice
a year a Report on the Outlook Regarding the Ecological Balance and the
Protection of the Environment as well as posting yearly achievements on its
website; Data information management system available to the public via the
Internet
There are currently no compliance mechanisms to ensure Plan or Program
objectives are met
No clear information
Application of Strategic Environmental Assessment is ad hoc
The President is the champion of the National Development Plan and each
Secretariat is responsible for meeting the specific commitments in their
sectoral program. SEMARNAT has overall coordinating responsibility
Each Secretariat/Ministry is responsible for implementing and funding its
individual Program (although funds would be allocated to the Secretariat
from the federal budget)
The National Development Plan and sectoral programs are posted online and
available to the public
law reforms
user fees
ecological taxes
decentralization

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Unedited Working Paper

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