Updated December 12, 2022
U.S.-Mexico Security Cooperation: From the Mérida Initiative
to the Bicentennial Framework
Elevated levels of organized crime-related violence in
1. Combating transnational organized criminal
Mexico and drug overdose deaths in the United States have
organizations (TCOs);
led some in Congress to question the efficacy of U.S.-
2. Strengthening criminal justice sector
Mexican security cooperation. Homicides in Mexico
institutions while protecting human rights;
reached record levels from 2016 to 2019, declined slightly
3. Creating a 21st-century U.S.-Mexican border
in 2020, but rose again in 2021 and remain elevated in
while improving immigration enforcement in
2022. Moreover, since 2019, Mexico has replaced China as
Mexico; and,
the primary U.S. source of fentanyl, which accounted for
some 66% of the nearly 108,000 U.S. drug overdoses in
4. Building strong and resilient communities
2021.
through pilot projects aimed at violence
prevention and drug demand reduction.
As Congress funds and oversees security cooperation under
The initiative’s wide-ranging cooperation was widely
the U.S.-Mexico Bicentennial Framework for Security,
praised. Critics asserted, however, that the two nations
Public Health, and Safe Communities, announced in
adopted an increasing number of priorities without
October 2021, it may evaluate lessons learned from the
allocating increased funding for them. In addition, a May
Mérida Initiative, a security partnership supported by $3.5
2020 Government Accountability Office report identified
billion in appropriations (FY2008 - FY2021).
deficiencies in monitoring impacts of specific programs.
Origins of the Mérida Initiative
Shifting Priorities: FY2018-FY2021
Prior to FY2008, Mexico did not receive large amounts of
President Trump’s executive orders on combatting
U.S. security assistance, partially due to Mexican sensitivity
transnational criminal organizations (E.O. 13773) and
about U.S. involvement in the country’s internal affairs. In
enhancing border security (E.O. 13767) refocused the
March 2007, then-Mexican President Felipe Calderón asked
Mérida Initiative. Controlling irregular migration became a
for more U.S. cooperation to fight criminal organizations
central U.S. goal, while promoting human rights and
and their cross-border trafficking operations. In response,
reforming the rule of law were arguably deemphasized.
the Mérida Initiative, a package of U.S. antidrug and rule-
Other U.S. priorities included reducing synthetic drug
of-law assistance to Mexico, began. As part of the Mérida
production, improving border interdiction and port security,
Initiative’s emphasis on shared responsibility, the Mexican
and combating money laundering.
government pledged to tackle corruption. The U.S.
government pledged to address drug demand and the illicit
Since taking office in 2018, Mexican President Andrés
trafficking of firearms and bulk currency to Mexico. Both
Manuel López Obrador has criticized the Mérida Initiative
governments have struggled to fulfill those commitments.
and reduced federal security cooperation with the United
States, with the exception of migration enforcement. In
Initial Phase: FY2008-FY2010
2020, the Coronavirus Disease 2019 (COVID-19) pandemic
Congress appropriated $1.5 billion for the Mérida Initiative
hindered bilateral cooperation. In October 2020, the United
from FY2008 to FY2010, including $420.7 million in
States arrested former Defense Minister Salvador
Foreign Military Financing (FMF), which enabled the
Cienfuegos on drug charges; the move angered the Mexican
purchase of equipment, including aircraft and helicopters,
government and further limited cooperation. Mexico’s
to support Mexico’s federal security forces (military and
Congress enacted a law requiring foreign law enforcement
police). Congress required the State Department to withhold
officials to share information they gather with designated
15% of certain U.S. aid for the Mexican military and police
Mexican federal authorities and requiring Mexican state
until the agency submitted an annual report stating that
and local officials to report contacts with foreign officials.
Mexico was taking steps to meet human rights
requirements. U.S. assistance focused on counternarcotics,
President López Obrador has enjoyed high approval ratings
border security, and counterterrorism; public security; and
despite his government’s lack of success in reducing violent
institution building. U.S. intelligence supported Mexico’s
crime. Mexico’s security strategy, released in February
strategy of arresting (and extraditing) kingpins from each of
2019, focuses on addressing the socioeconomic drivers of
the major drug trafficking organizations. This kingpin
crime. López Obrador’s government has implemented
strategy also fueled intra-cartel violence.
broad social programs rather than the type of targeted crime
prevention efforts that the U.S. Agency for International
The Four-Pillars: FY2011-FY2017
Development (USAID) has endorsed.
In 2011, the U.S. and Mexican governments broadened the
scope of bilateral efforts under four pillars.
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U.S.-Mexico Security Cooperation: From the Mérida Initiative to the Bicentennial Framework
Before his election, President López Obrador campaigned
have praised its prioritization of issues such as arms
against Mexico’s military-led “war” on TCOs and the
trafficking (a top priority for Mexico). Both governments
kingpin strategy of his predecessors. Nevertheless, he has
reported progress in a White House fact sheet released at
since backed constitutional reforms to allow military
the October 2022 HLSD. The fact sheet cited several new
involvement in public security to continue until 2028, a
initiatives to combat arms trafficking and synthetic opioids.
reform upheld by Mexico’s Supreme Court despite past
However, other lines of action, such as human rights,
rulings against such policies. Similarly, high-level arrests
appeared to repackage programs that had existed for many
and extraditions from Mexico increased in 2020 until
years under the Mérida Initiative.
Cienfuegos’ arrest. They have since resumed.
Congressional Action
President López Obrador replaced the federal police, which
Congress could influence the Bicentennial Framework
received U.S. equipment and training, with a new National
through appropriations and conditions on those
Guard primarily composed of military officers. There are
appropriations, other legislation, and oversight. In March
concerns about the National Guard violating human rights
2022, Congress enacted the FY2022 Consolidated
and lacking investigative capacity. In September 2022, the
Appropriations Act (P.L. 117-103). After consultations with
Mexican Congress enacted a constitutional reform to make
appropriators, the Administration allocated $64 million in
the National Guard a part of the defense ministry. Human
International Narcotics Control and Law Enforcement
rights and policing experts oppose this move, asserting that
(INCLE) funds and an unspecified portion of $57.8 million
military forces are ill suited for civilian policing. Critics
in Economic Support Funds (ESF) for programs that
also have noted declining investment in state and local
support Bicentennial Framework goals. The explanatory
police forces, which investigate most crimes.
statement to the act included a provision from H.Rept. 117-
84 prohibiting U.S. support for Mexican military
Some civil society and private sector leaders have criticized
participation in public security. Reporting requirements in
López Obrador for weakening anti-corruption institutions
the explanatory statement included a review of funds
and not creating the national anti-corruption system
provided by the Mérida Initiative; the adequacy of
required by a 2017 constitutional reform. Mexico’s
Mexico’s efforts to combat human rights abuses; and efforts
Congress approved the creation of an independent
to combat fentanyl flows. Neither the act nor the
prosecutor general’s office; however, the individual in that
accompanying explanatory statement referenced the
post, confirmed by the Mexican Congress, is the president’s
Bicentennial Framework.
close ally. He has intervened in cases involving the
president’s family, earning a supreme court rebuke. While
Congress is considering the Biden Administration’s
federal prosecutors have slowly pursued corruption cases
FY2023 budget request, which included $141.6 million in
against officials from past governments, they appear to
bilateral assistance for Mexico. The request included $64
have ignored most allegations involving López Obrador’s
million in INCLE funds and $75 million in ESF funds. The
allies. International experts fear prosecutors may have
FY2023 State and Foreign Operations appropriations bill
mishandled the emblematic case of 43 students disappeared
reported by the House Appropriations Committee (H.R.
in Guerrero in 2014.
8282) does not include a country-specific foreign assistance
level for Mexico. H.Rept. 117-401 accompanying H.R.
Bicentennial Framework
8282 recommends sufficient funding to support Mexico’s
The Biden Administration inherited a tense security
efforts against synthetic opioids. The report would prohibit
relationship with Mexico. In October 2021, Mexico hosted
any U.S. funds from supporting the involvement of
the first High-Level Security Dialogue (HLSD) since 2016.
Mexican military forces in law enforcement. The
After the dialogue, the governments announced a new
appropriations bill introduced in the Senate, S. 4662, does
Bicentennial Framework for Security, Public Health, and
not specify funds for Mexico. The explanatory statement
Safe Communities with three pillars:
would require the Secretary of State to produce a report
within 60 days on end user agreements for government to
1. Protect people by investing in public
government or commercial sales of weapons to Mexico. It
health solutions to drug use, supporting
also would require the Secretary of State to produce a report
safe communities, and reducing
related to Mexico’s efforts to address certain grave human
homicides and other high-impact crimes
rights violations prior to the obligation of FY2023 INCLE
2. Prevent transborder crime by reducing
funds for Mexico. The joint explanatory statement
arms trafficking, targeting illicit supply
accompanying the FY2023 National Defense Authorization
chains, and reducing human trafficking
Act (H.R. 7776) would require a report on bilateral security
and smuggling
and law enforcement cooperation with Mexico.
3. Pursue criminal networks by disrupting
See CRS Report R41576, Mexico: Organized Crime and
illicit financiers in both countries and
Drug Trafficking Organizations; CRS In Focus IF10400,
importers of precursor chemicals and
Trends in Mexican Opioid Trafficking and Implications for
synthetic drug producers in Mexico,
U.S.-Mexico Security Cooperation; and CRS In Focus
while strengthening security and justice.
IF10215, Mexico’s Immigration Control Efforts.
Many observers credit the October 2021 HLSD and the
Bicentennial Framework with revitalizing bilateral security
Clare Ribando Seelke, Specialist in Latin American
cooperation. Although some have criticized the framework
Affairs
for deemphasizing institutional reform in Mexico, others
https://crsreports.congress.gov

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U.S.-Mexico Security Cooperation: From the Mérida Initiative to the Bicentennial Framework

IF10578


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https://crsreports.congress.gov | IF10578 · VERSION 26 · UPDATED

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