Middle income countries are identified by per capita income data from the World Bank and health standards determined by the World Health Organization. Middle income countries include Mexico, Brazil, Egypt, China, India, and the oil-producing countries of the Middle East. The rate of industrialization in these countries was very rapid, and as a result, they were taken by surprise by environmental issues and have often ended up with serious pollution problems.
Like everywhere else in the world, in these countries, the first approach to environmental issues was from a human health perspective. Sanitary rules governing air and water pollution were the first step. After this came a greater concern for protecting natural resources including forests and a wide variety of animal species. In the 1980s, a world trend toward concern over global environmental issues began.
Climate change is not a political or policy issue in Mexico at this stage. While no one in Mexico is opposed to the global environmental dimension, it is out of the reach of the science and policymakers there. After the first IPCC meeting, Mexico's Minister of Environment simply did not believe that the climate change problem was real. The leading Mexican scientist would not participate in the IPCC process on behalf of the government so Ponce Nava, an international lawyer, represented Mexico in Working Group III of the IPCC and contributed to the climate change negotiations. During the process, Mexico became a member of the Organization for Economic Cooperation and Development (OECD), but is an annex three country in the Convention because it was not yet in the OECD when the Convention came into force.
Significant institutional development is underway in Mexico. Environment now has a ministry of its own including renewable natural resources and all other environmental issues. University scientists are now in charge of the Environment Ministry for the first time in Mexican history, and are able to decide environmental policy and find ways to implement it. Bridges are being built between the scientific and technical community and the politicians. There has been a learning process in both communities. Mexican leaders are learning that they need a scientific and technical basis for their political decisions or they will not be able to sustain these decisions. And scientists are learning to speak in terms that are understandable to politicians and realize that they have to relate their data to social and political concerns.
Another institutional change is the one taking place in the academic community. Until ten years ago, universities outside Mexico City were offering just basic degrees, and were unable to contribute to scientific discussions or policies at the international level. An isolated few scientists were reaching out internationally but they were not important nationally. There was no structure in which a Mexican scientist could do advanced research. For example, Nobel laureate Mario Molina was from Mexico but had to leave there to advance his research on CFCs and ozone depletion. There is now a move in Mexico to change this situation and to support scientists.
There is also a move to strengthen NGOs and other institutions that are important to environmental advancement. In 1989, Mexico requested a loan from the World Bank to strengthen environmental institutions but the Bank did not want to loan money for "institutional development," (salaries). This request coincided with the signing of the Montreal Protocol and the beginnings of the Global Environment Facility (GEF). Mexico was the first country to do a project under the Montreal Protocol fund. Finally, the World Bank agreed to grant this loan, coincident with the first pilot phase of the GEF, but it was associated with biodiversity projects. Sometimes, camouflaging development projects with environmental projects is necessary to secure international funding. Part of building institutional capacity is developing a group of people who can get a project going and the country can gain something from this. This loan has served as seed money for Mexico to raise a billion and a half in international funds for environmental/development projects.
The signing of the North American Free Trade Agreement (NAFTA) also brought international funding to strengthen Mexican environmental enforcement. Before 1990, there were only 18 inspectors for 3000 km of border. With NAFTA, this number increased to 800 using World Bank money. Mexico's new OECD status could hurt its ability to get these kinds of funds. The new approach is trade not aid.
Ponce Nava used economic and social data about Mexico to explain why climate change cannot be a top priority issue in Mexico. Though Mexicans know it's a problem, it is near the end of a long list of higher priorities. Mexican population statistics reveal a nation with:
In terms of biodiversity Mexico is the world's fourth richest country. Mexico is:
The needs of natural areas must be associated with the needs of local peoples. Development issues and protection of biodiversity must be linked.
NGOs are a middle class phenomena. People must have satisfied their basic needs in order to have the time and resources to raise funds and undertake projects. Also they must also be affluent enough to have access to communication technologies, such as fax machines.
Climate change connections:
About 75% of the fresh water in Mexico is concentrated in one area. On the border with the U. S., there is no regime to distribute groundwater so it's done on a first come-first served basis. Water shortages are significant in Mexico and will become critical in the next 20 years. This will be even more true if climate change predictions come to pass.
Veracruz contains 25% of the fresh water resources in the country, and only 5% of its waste water is treated; the rest is discharged raw into the sea. Potential climatic effects on the water supply are not a priority when basic issues of access and water treatment are a problem.
Some 60% of Mexican revenue is from oil and most oil extraction takes place in this same area. Of course, oil and water have everything to do with climate change, but no one is worrying about those connections. Everyone realizes that climate change is relevant but there are more important issues to solve first.
In discussion, it was pointed out that a number of factors are improving Mexico's flexibility and capability to respond to climate change, including:
the rising political profile for environmental issues in Mexico
international financing used well (but capacity building grants unexplored)
OECD membership pushes Mexico toward higher environmental standards
NAFTA directions of free trade and the role of the environment serve the purpose of moving toward higher environmental standards