CITY COUNCIL STAFF REPORT
February 6, 2024 {{section.number}}e
CROSS BORDER WATER QUALITY AND CITY ADVOCACY UPDATE
RECOMMENDATION:
Receive a report and provide direction, as appropriate, regarding the City’s collective Cross Border Water Quality efforts, including whether to continue the Ad Hoc Committee beyond its April 1, 2024 sunset and the membership thereof.
BACKGROUND:
The City of Tijuana’s regional wastewater infrastructure is decades old, has inadequate capacity to treat and convey wastewater and suffers from repeated breaks and system failures. These failures lead to spillage and wastewater discharge into the Tijuana River, its tributaries and outfall into the Pacific Ocean, polluting the ocean waters off Imperial Beach, Coronado and beyond. The City of Coronado has been tirelessly advocating for wastewater treatment solutions since 2016, along with other regional partners.
This report provides an update on activities and progress over the past year.
ANALYSIS:
U.S. EPA / IBWC and Mexico Wastewater Infrastructure Projects In 2022 the federal government allocated $330 million for a suite of improvement projects to the South Bay International Wastewater Treatment Plant (International Treatment Plant) in San Ysidro and surrounding river system. To provide international cooperation and funding, the United States and Mexico signed Minute Order 328 in July 2022, a binational agreement committing to implementation of projects to reduce and eliminate cross-border pollution. Through this treaty, the Mexican government is contributing $144 million for improvements to canyon collectors and the San Antonio de los Buenos Wastewater Treatment Plant (SAB Treatment Plant) in Mexico.
For the U.S., the infrastructure projects are managed by the Environmental Protection Agency (EPA) and the International Boundary and Water Commission (IBWC), which operates the International Treatment Plant and the collection systems on the U.S. side of the border. The following infrastructure improvements are planned to adequately address cross border wastewater collection and treatment. The improvement projects include:
• Expanding the capacity of the existing International Treatment Plant from 25 million gallons per day (MGD) to 50 MGD;
• Building an additional treatment plant on the U.S. side of the border to treat river flows; • Installing trash booms in the Tijuana River on the U.S. side of the border; and • Additional repairs to the wastewater canyon collection system.
With appropriate funding, the five combined projects (including Mexico’s improvements) are expected to be completed and operational by the end of 2027 and would result in a 90% reduction in the number of days of transboundary wastewater flow in the Tijuana River and an 80% reduction in untreated wastewater discharged to the Pacific Ocean six miles south of the border.
Please see Attachment 1 for a graphic of the regional sewer treatment infrastructure.
Status of Infrastructure Projects
Significant progress has been made in recent months regarding these repairs, but momentum must continue to ensure their timely implementation. Updates are as follows:
1. October 2023: Mexico announced completion of the rehabilitation of the Oriente Collector sewer main and 20% construction completion of the new International Collector. The new International Collector will have the capacity to carry up to 60 million gallons per day of untreated sewage to the International Treatment Plant. Completion of the International Collector is scheduled for spring 2024.
2. December 2023: Mexico announced completion of pressurized lines carrying wastewater and river water to the SAB Treatment Plant and bid of repairs to Pump Station 1. Pump Station 1 repairs should be completed in 2026. a. Projects number 1 and 2 above combined will help prevent future spills of up to 58 MGD from entering the U.S.
3. December 2023: the IBWC posted the solicitation for the International Treatment Plant Rehabilitation and Expansion Progressive Design-Build Project. The project includes essential rehabilitation of existing infrastructure and expansion from 25 million gallons per day (MGD) to 50 MGD with additional capacity to treat daily peak flows up to 75 MGD reliably for temporary periods and still meet permit compliance. Completion of the project is scheduled for 2027; however, additional funding is needed.
4. January 1, 2024: the Los Laureles I Pump Station project rehabilitation, funded by Mexico, has been procured and is expected to be constructed in 2024. This project will reduce cross-border flows in Goat Canyon on the U.S. side of the border.
5. January 11, 2024: Mexico held a groundbreaking ceremony for the project to design, construct, and rehabilitate the SAB Treatment plant located south of Tijuana, Mexico.
The groundbreaking ceremony included the participation of US Ambassador to Mexico Ken Salazar and Baja California Governor Marina del Pilar Avila Olmeda. The project is fully funded by Mexico at a cost of $37 million and will include the rehabilitation of the existing SAB Treatment Plant as well as wastewater treatment upgrades. Completion of the project is scheduled for September 2024. The rehabilitated SAB Treatment Plant will treat 18 million gallons per day which will reduce the volume of untreated wastewater discharged into the ocean at SAB.
Status of Federal Funding for Infrastructure Projects
In 2022, the total costs for the infrastructure improvements were estimated at $640 million.
Subsequent to the appropriation of the $330 million by the federal government, it was revealed that the existing IBWC treatment plant suffered from deferred maintenance estimated at $150 million in addition to the $330 million which was needed to rehabilitate the plant prior to the expansion and enhancement projects. Advocacy to overcome this funding set-back immediately commenced and is a major feature of the City’s current efforts.
Below is an update on notable milestones for funding of cross border water infrastructure projects:
• October 25, 2023: President Biden requested $310 million in Fiscal Year 2024 emergency supplemental funding to the IBWC to add to the existing funding for the expansion of the International Treatment Plant. Without Congressional approval of the requested supplemental funding, there will be delay in completing construction by several years as well as increases in overall long-term costs, due to inflation and additional ramp-up needed with separate construction phases. • November 15, 2023: the House Transportation & Infrastructure Committee voted to authorize IBWC to accept funds for activities relating to wastewater treatment and flood control works, and other purposes from federal and non-federal entities, including through a grant or funding agreement. Congress will need to approve the authorization. • January 12, 2024: EPA and IBWC finalized the Interagency Agreement which will transfer funds set aside by the 2020 U.S.-Mexico-Canada Agreement to IBWC for the design and construction of the International Treatment Plant expansion project. IBWC will now take the lead on the project.
In addition to projects listed above, in early 2023 the California State Water Resources Board awarded $8.7 million to the San Diego County area for the following trash and dredging projects:
• $4 million went to the County for sediment removal, trash boom and dredging project in Smuggler’s Gulch to divert flows and trash.
• $4.7 million went to Rural Community Assistance Corporation for Tijuana River Trash Booms Project involves the design, construction and operation and maintenance of a floating trash boom system for two consecutive storm seasons in the concrete-lined portion of the main Tijuana River Channel immediately downstream of the border. This is a demonstration project; the information gathered will be used to develop permanent trash control infrastructure.
Also of note, in August 2023 the State of California awarded UC San Diego’s Scripps Institution of Oceanography $3 million to develop a model to forecast the presence of pathogens in San Diego coastal and tidal waters. The model aims to predict the presence of bacterial and viral pathogens from untreated sewage in estuary and coastal waters, which can inform decisionmakers when beach closures are necessary.
City Council Ad Hoc Committee on Cross Border Water Quality The City Council Ad Hoc Committee on Cross Border Water Quality was authorized by the City Council on April 2, 2023. The Subcommittee members include Mayor Bailey and Councilmember Duncan with support from City Manager Friend, Assistant City Manager Winney and Andre Monette with BBK, the City’s federal advocate.
The Ad Hoc Committee meets monthly to coordinate advocacy efforts on the local, state and federal level. The Ad Hoc Committee developed a work plan to focus advocacy efforts and ensure the involvement of the broad spectrum of partners in long-term solutions to the cross-border water pollution. Major efforts of the Ad Hoc Committee include:
• Conducting ongoing meetings with Coronado’s Federal delegation to urge expedited construction of the current suite of $330 million of improvements and to appropriate future Federal funding to complete the remaining improvements (~$300 million); • Encouraging federal authorities to ensure the Mexican government fulfills its commitment to build its projects (particularly the SAB Treatment Plant rehabilitation) with its pledged $144 million;
• Advocating for consistent and ongoing funding of the EPA Border Water Infrastructure Grant Program (BWIP) for maintenance and operations for the IBWC treatment plant and pollution prevention infrastructure at the border;
• Expanding coordination with local jurisdictions for a cohesive advocacy and information sharing.
In October 2023, Councilmember Duncan traveled with a contingent of 12 local elected officials coordinated by the San Diego Regional Chamber of Commerce to Mexico City to help bring additional attention to cross border water quality and learn more about Mexico’s intentions for implementation of future infrastructure improvements.
Mayor Bailey and Councilmember Duncan traveled to Washington D.C. in January 2024 to meet with Congressmembers to garner support for the President’s supplemental budget funding bill.
Meetings were held with over 15 members of Congress and key appropriations committees to discuss the impacts of cross border pollution on Coronado and the broader San Diego region and to solicit support for the supplemental funding bill. Action on that bill has now been deferred until March 2024 due to the continuing budget resolution approved by Congress in mid-January.
The Council authorized this subcommittee for one year, to April 1, 2024. Staff recommends that the Council discuss this committee and provide direction on its continuation and membership.
National League of Cities Energy, Environment and Natural Resources Committee Councilmember Downey was appointed to the National League of Cities’ (NLC) Energy, Environment and Natural Resources (EENR) Committee. Attending committee meetings and the November 2023 National League of Cities “Cities Summit” in Atlanta, Georgia, Councilmember Downey advocated for the adoption of a resolution in support of infrastructure projects to address transboundary water pollution. NLC Resolution 2024-14, a “Resolution to Increase Funding for Border Water Infrastructure Projects” (attached) was adopted and is part of the NCL’s 2024 platform for its advocacy in Washington, D.C. on behalf of cities nationwide.
Councilmember Downey was asked to increase her activity on this committee and is expected to conduct additional travel and engagement nationally on water pollution issues through at least 2024.
IBWC Citizen’s Forum
On June 12, 2023 Councilmember John Duncan was notified of his appointment to the IBWC Citizen’s Advisory Board. The IBWC Citizens Forum (CF) was established in 2002 to facilitate the exchange of information between the IBWC and members of the public, government agencies, and other interested stakeholders.
The CF meets quarterly with their most recent meeting held on November 8, 2023 in Coronado.
Updates were provided on air monitoring of the Tijuana River by the San Diego County Air Pollution Control District and an update of IBWC Activities in the San Diego Region. Copies of the presentations provided at each meeting can be found on their website at https://www.ibwc.gov.
Additional Coronado Advocacy Efforts
In addition to the advocacy visits and committee representation, a number of letters and correspondence have been written by the City during the past year to local, state and federal representatives in an effort to garner support on this important issue. Copies of those letters can be found on the Cross Border Water Pollution project website at:
https://www.projectcoronado.org/cross-border-water-pollution.
Next Steps
Staff request City Council discussion of the City’s collective cross-border water pollution activities, and provide direction as appropriate, including consideration of continuance of the Ad Hoc Committee and membership composition.
FISCAL IMPACT:
Submitted travel expenses for legislative advocacy visits to Washington D.C., Mexico City and Atlanta as of January 23, 2024 were charged to the Legislative Meetings account and total approximately $13,000.
ALTERNATIVE:
The City Council could direct staff to research additional options or provide alternate direction on cross border water pollution efforts.
CALIFORNIA ENVIRONMENTAL QUALITY ACT:
Not Applicable.
PUBLIC NOTICE:
No notice required.
ATTACHMENTS:
1. Map of Regional Sewage Infrastructure System, including Canyon Collectors
2. National League of Cities Resolution 2024-14
Submitted By: City Manager's Office / Tony Winney