[Congressional Record (Bound Edition), Volume 154 (2008), Part 9]
[House]
[Pages 11982-11997]
[From the U.S. Government Publishing Office, www.gpo.gov]




  MERIDA INITIATIVE TO COMBAT ILLICIT NARCOTICS AND REDUCE ORGANIZED 
                    CRIME AUTHORIZATION ACT OF 2008

  Mr. BERMAN. Madam Speaker, I move to suspend the rules and pass the 
bill (H.R. 6028) to authorize law enforcement and security assistance, 
and assistance to enhance the rule of law and strengthen civilian 
institutions, for Mexico and the countries of Central America, and for 
other purposes, as amended.
  The Clerk read the title of the bill.
  The text of the bill is as follows:

                               H.R. 6028

       Be it enacted by the Senate and House of Representatives of 
     the United States of America in Congress assembled,

     SECTION 1. SHORT TITLE AND TABLE OF CONTENTS.

       (a) Short Title.--This Act may be cited as the ``Merida 
     Initiative to Combat Illicit Narcotics and Reduce Organized 
     Crime Authorization Act of 2008''.
       (b) Table of Contents.--The table of contents for this Act 
     is as follows:

Sec. 1. Short title and table of contents.
Sec. 2. Definitions.

                     TITLE I--ASSISTANCE FOR MEXICO

Sec. 101. Findings.
Sec. 102. Declarations of policy.

          Subtitle A--Law Enforcement and Security Assistance

Sec. 111. Purposes of assistance.
Sec. 112. Authorization of assistance.
Sec. 113. Activities supported.
Sec. 114. Limitation on assistance.
Sec. 115. Authorization of appropriations.

[[Page 11983]]

   Subtitle B--Assistance to Enhance the Rule of Law and Strengthen 
                         Civilian Institutions

Sec. 121. Sense of Congress.
Sec. 122. Authorization of assistance.
Sec. 123. Activities supported.
Sec. 124. Authorization of appropriations.

         TITLE II--ASSISTANCE FOR COUNTRIES OF CENTRAL AMERICA

Sec. 201. Findings.
Sec. 202. Declarations of policy.

          Subtitle A--Law Enforcement and Security Assistance

Sec. 211. Purposes of assistance.
Sec. 212. Authorization of assistance.
Sec. 213. Activities supported.
Sec. 214. Limitation on assistance.
Sec. 215. Authorization of appropriations.

   Subtitle B--Assistance to Enhance the Rule of Law and Strengthen 
                         Civilian Institutions

Sec. 221. Authorization of assistance.
Sec. 222. Activities supported.
Sec. 223. Authorization of appropriations.

                  TITLE III--ADMINISTRATIVE PROVISIONS

Sec. 301. Conditions on provision of assistance.
Sec. 302. Limitations on provision of assistance.
Sec. 303. Limitation on monitoring.
Sec. 304. Exemption from prohibition on assistance for law enforcement 
              forces.
Sec. 305. Relationship to other authority.
Sec. 306. Rule of construction.

           TITLE IV--SUPPORT ACTIVITIES IN THE UNITED STATES

Sec. 401. Report on reduction of drug demand in the United States.
Sec. 402. Reduction of southbound flow of illegal weapons.
Sec. 403. Reduction of southbound flow of illegal precursor chemicals 
              and bulk-cash transfers.
Sec. 404. Report.

                   TITLE V--MISCELLANEOUS PROVISIONS

Sec. 501. Coordinator of United States Government Activities to 
              Implement the Merida Initiative.
Sec. 502. Metrics and oversight mechanisms.
Sec. 503. Report.
Sec. 504. Sense of Congress.
Sec. 505. Sunset.

     SEC. 2. DEFINITIONS.

       In this Act:
       (1) Appropriate congressional committees.--The term 
     ``appropriate congressional committees''--
       (A) means--
       (i) the Committee on Appropriations and the Committee on 
     Foreign Affairs of the House of Representatives; and
       (ii) the Committee on Appropriations and the Committee on 
     Foreign Relations of the Senate; and
       (B) for purposes of titles IV and V, includes the Committee 
     on the Judiciary of the House of Representatives and the 
     Committee on the Judiciary of the Senate.
       (2) Countries of central america.--The term ``countries of 
     Central America'' means Belize, Costa Rica, El Salvador, 
     Guatemala, Honduras, Nicaragua, and Panama and includes Haiti 
     and the Dominican Republic.
       (3) Merida initiative.--The term ``Merida Initiative'' 
     means the program announced by the United States and Mexico 
     on October 22, 2007, to fight illicit narcotics trafficking 
     and criminal organizations throughout the Western Hemisphere.

                     TITLE I--ASSISTANCE FOR MEXICO

     SEC. 101. FINDINGS.

       Congress finds the following:
       (1) The drug crisis facing the United States remains a 
     significant national security threat.
       (2) The Government Accountability Office (GAO) estimates 
     that 90 percent of illegal drugs that enter the United States 
     come through the Mexico-Central America corridor.
       (3) The same smuggling routes that are used to bring 
     illegal narcotics north are utilized to illegally distribute 
     arms, precursor chemicals, and bulk cash transfers south.
       (4) Drug gangs that operate in the United States, Mexico, 
     and Central America have become sophisticated and vertically-
     integrated operations expert at penetrating the United 
     States-Mexico border.
       (5) Narcotics-related activity and expanding cross-border 
     trafficking is dangerously undermining the security 
     environment for our neighbors to the South, as well as in the 
     United States.
       (6) Mexico can and has served as a critical ally and 
     partner in stemming the flow of illegal narcotics into the 
     United States. Under the leadership of Mexican President 
     Felipe Calderon, the United States and Mexico have initiated 
     an approach of joint responsibility to confront the threat of 
     illicit narcotics trafficking and organized crime in the 
     Western Hemisphere.
       (7) The spread of illicit narcotics through United States 
     borders and the violence that accompanies it cannot be halted 
     without a comprehensive interdiction and security strategy 
     planned and executed jointly with our southern neighbors.
       (8) In March 2007, President George W. Bush and Mexican 
     President Calderon held a summit in the Mexican City of 
     Merida and agreed that the United States and Mexico must 
     expand bilateral and regional cooperation to fight violence 
     stemming from narcotrafficking and regional criminal 
     organizations.
       (9) On October 22, 2007, the United States and Mexico 
     issued a joint statement announcing the Merida Initiative, a 
     program to fight illicit narcotics trafficking and criminal 
     organizations throughout the Western Hemisphere.
       (10) In the joint statement--
       (A) Mexico pledged to ``strengthen its operational 
     capabilities to more effectively fight drug-traffickers and 
     organized crime'';
       (B) the United States pledged ``to intensify its efforts to 
     address all aspects of drug trafficking (including demand-
     related portions) and continue to combat trafficking of 
     weapons and bulk currency to Mexico''; and
       (C) both nations pledged to ``augment cooperation, 
     coordination, and the exchange of information to fight 
     criminal organizations on both sides of the border''.
       (11) A long-term strategy to adequately contain the 
     northbound and southbound flows of illicit narcotics along 
     the United States-Mexico border, as well as protect the vast 
     and free flow of trade, will require the United States to 
     partner with its southern neighbors in their efforts to build 
     the capacity of their own law enforcement agencies and 
     enhance the rule of law, as well as to fortify United States 
     illicit narcotics reduction efforts.

     SEC. 102. DECLARATIONS OF POLICY.

       Congress makes the following declarations:
       (1) The Merida Initiative is a critical part of a growing 
     partnership and strategy of cooperation between the United 
     States and its southern neighbors to confront the illegal 
     flow of narcotics as well as violence and organized crime 
     that it has spawned.
       (2) The United States needs to ensure the free flow of 
     trade between the United States and its critical neighbor, 
     Mexico, while ensuring that the United States border is 
     protected from illegal smuggling into the United States.
       (3) The United States must intensify efforts to stem the 
     flow of precursor chemicals, bulk cash, and the so-called 
     ``iron-river'' of arms illegally flowing south, as well as 
     demand-related aspects of the illicit narcotics phenomenon.
       (4) The United States should provide its expertise to meet 
     immediate security needs along the United States-Mexico 
     border, fight the production and flow of illicit narcotics, 
     and support Mexico in its efforts to do the same.
       (5) The United States should support the Government of 
     Mexico's work to expand its own law enforcement to 
     independently conduct successful counternarcotics and 
     organized crime-related operations.
       (6) The Merida Initiative reflects the belief that Mexican 
     military involvement is required in the short-term to 
     stabilize the security situation, but that most aspects of 
     this problem fall into the realm of law enforcement.
       (7) In implementing the Merida Initiative, the United 
     States should work with its southern neighbors to mitigate 
     the so-called ``balloon effect'' in which successful 
     counternarcotics efforts shift narcotics-related activities 
     to other areas.
       (8) The United States should coordinate with the Congress 
     of the Union of Mexico to ensure full partnership on the 
     programs authorized under this Act.

          Subtitle A--Law Enforcement and Security Assistance

     SEC. 111. PURPOSES OF ASSISTANCE.

       The purposes of assistance under this subtitle are to--
       (1) enhance the ability of the Government of Mexico, in 
     cooperation with the United States, to control illicit 
     narcotics production, trafficking, drug trafficking 
     organizations, and organized crime;
       (2) help build the capacity of law enforcement forces of 
     Mexico to control illicit narcotics production, trafficking, 
     drug trafficking organizations, and organized crime;
       (3) aid the support role that the armed forces of Mexico is 
     providing to law enforcement agencies of Mexico as the 
     security situation in Mexico is initially stabilized;
       (4) protect and secure the United States-Mexico border, and 
     control illegal activity going south as well as north;
       (5) strengthen the bilateral and regional ties of the 
     United States with Mexico and the countries of Central 
     America by assuming shared responsibility and offering 
     concrete assistance in this area of great mutual concern;
       (6) strengthen respect for internationally recognized human 
     rights and the rule of law in efforts to stabilize the 
     security environment relating to illicit narcotics production 
     and trafficking and organized crime; and
       (7) support the judicial branches of the Government of 
     Mexico and the countries of Central America, as well as 
     support anti-corruption efforts in those countries; and
       (8) respond to the direct requests of the Government of 
     Mexico that the United States reduce the demand for illicit 
     narcotics in the United States, stem the flow of illegal arms 
     into Mexico from the United States, stem the flow of illegal 
     bulk-cash transfers into Mexico from the United States, and 
     stem the flow of illegal precursor

[[Page 11984]]

     chemicals into Mexico from the United States.

     SEC. 112. AUTHORIZATION OF ASSISTANCE.

       To carry out the purposes of section 111, the President is 
     authorized to provide assistance for Mexico to support the 
     activities described in section 113.

     SEC. 113. ACTIVITIES SUPPORTED.

       (a) In General.--Activities that may be supported by 
     assistance under section 112 include the following:
       (1) Counternarcotics and countertrafficking.--To assist in 
     building the capacity of law enforcement and security forces 
     of Mexico to eradicate illicit narcotics trafficking and 
     reduce trafficking-fueled violence, including along the 
     United States-Mexico border, including assistance such as--
       (A) radar and aerial surveillance equipment;
       (B) land and maritime interdiction equipment and training, 
     including--
       (i) transport helicopters and night-operating capabilities;
       (ii) surveillance platform planes; and
       (iii) maintenance and training relating to maintenance of 
     aircraft; and
       (C) training of security and law enforcement units to plan 
     and execute counternarcotics operations.
       (2) Port, airport, and related security.--To assist in 
     monitoring and controlling the United States-Mexico border 
     and the border between Mexico and Central America to combat 
     illicit narcotics trafficking, including assistance such as--
       (A) computer infrastructure and equipment;
       (B) secure communications networks; and
       (C) nonintrusive monitoring technology.
       (3) Operational technology.--
       (A) Assistance objectives.--To assist in investigation and 
     collection of intelligence against illicit drug trafficking 
     organizations, including--
       (i) expansion of intelligence databases; and
       (ii) hardware, operating systems, and training for updating 
     the communications networks of security agencies.
       (B) Sense of congress.--It is the sense of Congress that--
       (i) operational technology transferred to the Government of 
     Mexico for intelligence or law enforcement purposes should be 
     used solely for the purposes for which the operational 
     technology was intended; and
       (ii) the United States should take all necessary steps to 
     ensure that use of operational technology described in clause 
     (i) is consistent with United States law, including 
     protections of freedom of expression, freedom of movement, 
     and freedom of association.
       (4) Public security and law enforcement.--To assist in the 
     modernization of law enforcement entities and prevent crime, 
     including assistance and activities such as--
       (A) law enforcement training and equipment, including--
       (i) transport helicopters;
       (ii) surveillance aircraft, including Cessna Caravan light 
     utility aircraft;
       (iii) nonintrusive inspection equipment; and
       (iv) human rights training for law enforcement units;
       (B) enhancement of the Government of Mexico's financial 
     intelligence unit;
       (C) safety-related equipment for law enforcement officers 
     and prosecutors, including protective vests and helmet sets;
       (D) reduction of drug demand in Mexico, including 
     activities such as--
       (i) assistance to the National Council Against Addictions 
     (CONADIC) to establish an Internet web-based support network;
       (ii) establishment of a national data center to support the 
     CONADIC; and
       (iii) training of CONADIC and other agency staff in best 
     practices and outreach and treatment programs, and design of 
     a methodology to implement best practices in conjunction with 
     the National Network for Technological Transfers in 
     Addiction.
       (b) Provision of Helicopters.--Funds made available to 
     carry out this subtitle to provide helicopters to the 
     Government of Mexico, shall, to the extent possible, be used 
     to procure or provide helicopters that are of a similar 
     manufacture to those helicopters already in the possession of 
     the Government of Mexico in order to facilitate integration 
     of those assets into Mexico's existing air fleet.
       (c) Sense of Congress.--It is the sense of Congress that 
     the United States shall ensure, to the extent possible, that 
     assistance under this subtitle is made available and cross-
     utilized by the armed forces of Mexico and relevant law 
     enforcement agencies of the Government of Mexico, including 
     the Mexican Office of the Attorney General.

     SEC. 114. LIMITATION ON ASSISTANCE.

       (a) Limitation.--No assistance may be provided under this 
     subtitle to any unit of the armed forces of Mexico or any 
     unit of the law enforcement agencies of Mexico if the 
     Secretary of State determines that, consistent with section 
     620J of the Foreign Assistance Act of 1961 (22 U.S.C. 2378d), 
     there is credible evidence that such unit has committed gross 
     violations of human rights.
       (b) Exception.--The limitation in subsection (a) shall not 
     apply if the Secretary of State determines and reports to the 
     appropriate congressional committees that the Government of 
     Mexico is taking effective measures to bring the responsible 
     members of the unit of the armed forces or law enforcement 
     agencies, as the case may be, to justice.

     SEC. 115. AUTHORIZATION OF APPROPRIATIONS.

       (a) In General.--To carry out this subtitle, there are 
     authorized to be appropriated to the President $350,000,000 
     for fiscal year 2008, $390,000,000 for fiscal year 2009, and 
     $40,000,000 for fiscal year 2010.
       (b) Limitation.--
       (1) In general.--Of the amounts appropriated pursuant to 
     the authorization of appropriations under subsection (a)--
       (A) not more than $205,000,000 may be provided as 
     assistance for the armed forces of Mexico for 2008;
       (B) not more than $120,000,000 may be provided as 
     assistance for the armed forces of Mexico for 2009; and
       (C) not more than $9,000,000 may be provided as assistance 
     for the armed forces of Mexico for 2010.
       (2) Additional limitation.--None of the funds appropriated 
     pursuant to the authorization of appropriations under 
     subsection (a) for fiscal year 2009 may be provided as 
     assistance for the Mexican Secretariat of Public Security 
     until the President determines that the Mexican National 
     Registry of Police Personnel (Registro Nacional de Personal 
     Policial) is operational at the federal, state, and local 
     levels.
       (c) Availability.--Amounts appropriated pursuant to the 
     authorization of appropriations under subsection (a) are--
       (1) authorized to remain available until expended; and
       (2) in addition to funds otherwise available for such 
     purposes, including funds available under chapter 8 of part I 
     of the Foreign Assistance Act of 1961 (22 U.S.C. 2291 et 
     seq.).

   Subtitle B--Assistance to Enhance the Rule of Law and Strengthen 
                         Civilian Institutions

     SEC. 121. SENSE OF CONGRESS.

       It is the sense of Congress that, as a critical part of a 
     joint, comprehensive security, counternarcotics, and 
     organized crime initiative, the United States should 
     support--
       (1) programs of the United States Agency for International 
     Development and other United States agencies focused on 
     strengthening civilian institutions and rule of law programs 
     in Mexico at the federal, state, and local levels; and
       (2) anti-corruption, transparency, and human rights 
     programs to ensure due process and expand a culture of 
     lawfulness in Mexico.

     SEC. 122. AUTHORIZATION OF ASSISTANCE.

       The President is authorized to provide assistance for 
     Mexico to support the activities described in section 123.

     SEC. 123. ACTIVITIES SUPPORTED.

       Activities that may be supported by assistance under 
     section 122 include the following:
       (1) Institution building and rule of law.--To assist 
     Mexico's efforts to expand the rule of law and build the 
     capacity, transparency, and trust in government institutions, 
     including assistance such as--
       (A) rule of law and systemic improvements in judicial and 
     criminal justice sector institutions, including--
       (i) courts management and prosecutorial capacity building;
       (ii) prison reform activities, including those relating to 
     anti-gang and anti-organized crime efforts;
       (iii) anti-money laundering programs;
       (iv) victim and witness protection and restitution; and
       (v) promotion of transparent oral trials via training for 
     the judicial sector;
       (B) police professionalization, including--
       (i) training regarding use of force;
       (ii) human rights education and training;
       (iii) training regarding evidence preservation and chain of 
     custody; and
       (iv) enhanced capacity to vet candidates;
       (C) support for the Mexican Office of the Attorney General, 
     including--
       (i) judicial processes improvement and coordination;
       (ii) enhancement of forensics capabilities;
       (iii) data collection and analyses;
       (iv) case tracking and management;
       (v) financial intelligence functions; and
       (vi) maintenance of data systems.
       (2) Anti-corruption, transparency, and human rights.--To 
     assist law enforcement and court institutions in Mexico to 
     develop mechanisms to ensure due process and proper oversight 
     and to respond to citizen complaints, including assistance 
     such as--
       (A) enhancement of polygraph capability in the Mexican 
     Police agency (SSP);
       (B) support for greater transparency and accountability in 
     the Mexican legal system, including--
       (i) establishment of a center in the Mexican Office of the 
     Attorney General for receipt of citizen complaints;
       (ii) establishment of clerk of the court system to track 
     cases and pretrial detentions;
       (iii) reorganization of human and financial resources 
     systems; and
       (iv) equipping and training of criminal investigators; and
       (C) promotion of human rights, including--
       (i) support for human rights organizations, bar 
     associations, and law schools; and
       (ii) training for police, prosecutors, and corrections 
     officers.

[[Page 11985]]

       (3) Prevention.--To assist in the prevention of individuals 
     from participating in illicit narcotics-related violent 
     activities, such as--
       (A) establishment of programs that address domestic 
     violence and increase school attendance rates; and
       (B) expansion of intervention programs, including after-
     school programs and programs for at-risk and criminal 
     involved youth.
       (4) Development.--To assist in the development of areas 
     where lack of jobs breeds illicit narcotics-related violence, 
     including--
       (A) expansion of alternative livelihood programs, including 
     job creation programs and rural development programs and the 
     provision of microenterprise development assistance under 
     title VI of chapter 2 of part I of the Foreign Assistance Act 
     of 1961 (22 U.S.C. 2211 et seq.); and
       (B) establishment of gang reeducation and training 
     programs.

     SEC. 124. AUTHORIZATION OF APPROPRIATIONS.

       (a) In General.--To carry out this subtitle, there are 
     authorized to be appropriated to the President $120,000,000 
     for fiscal year 2008, $100,000,000 for fiscal year 2009, and 
     $110,000,000 for fiscal year 2010.
       (b) Availability.--Amounts appropriated pursuant to the 
     authorization of appropriations under subsection (a) are--
       (1) authorized to remain available until expended; and
       (2) in addition to funds otherwise available for such 
     purposes, including funds available under chapter 8 of part I 
     of the Foreign Assistance Act of 1961.

         TITLE II--ASSISTANCE FOR COUNTRIES OF CENTRAL AMERICA

     SEC. 201. FINDINGS.

       Congress finds the following:
       (1) A May 2007 report by the United Nations Office on Drugs 
     and Crime (UNODC) argues that countries of Central America 
     are particularly vulnerable to violent crimes fueled by 
     illicit narcotics trafficking and corruption because such 
     countries are geographically located between the world's 
     largest drug producing and drug consuming countries.
       (2) According to Assistant Secretary of State for Western 
     Hemisphere Affairs Thomas Shannon, ``[T]he nations of Central 
     America have committed to collective action to address these 
     common security concerns. Through the Central American 
     Integration System (SICA), the governments have expressed the 
     political resolve to join forces to strengthen regional 
     security; however they lack sufficient tools and capacity to 
     execute such will.''.
       (3) Crime and violence in Central America has increased in 
     recent years.
       (4) In 2005, the estimated murder rate per 100,000 people 
     was roughly 56 in El Salvador, 41 in Honduras, and 38 in 
     Guatemala.
       (5) Youth gang violence has been one of the major factors 
     contributing to increased violence in Central America, with 
     the United States Southern Command estimating that there are 
     70,000 gang members in Central America.
       (6) Many Central American youth gangs are transnational and 
     negatively impact both Central America and the United States.
       (7) Youth gang violence cannot be curbed only through 
     enforcement, but must also include a substantial investment 
     in prevention, rehabilitation, and reintegration.
       (8) Deportees sent from the United States back to Central 
     America, while not a central cause of crime and violence, can 
     contribute to crime and violence in Central America.
       (9) Guatemala has experienced a surge in murders of women 
     in recent years, many of which have been committed by illicit 
     narcotics traffickers and other organized criminals.
       (10) Violence between partners, particularly violence by 
     men against their wives or girlfriends, is widespread in 
     Central America, and an international violence against women 
     survey comparing selected countries in Africa, Latin America, 
     Europe, and Asia found that 60 percent of women in Costa 
     Rica--often considered the least violent country in Central 
     America--reported having experienced domestic violence during 
     their lives.
       (11) Weak justice systems in the countries of Central 
     America have led to a high level of impunity in Central 
     America.
       (12) The United Nations International Commission against 
     Impunity in Guatemala (CICIG) was recently created to begin 
     to address impunity related to illegally armed groups in 
     Guatemala.
       (13) The United States and the Central American Integration 
     System (SICA) signed an agreement in July 2007 to improve 
     intelligence sharing and policing and to institutionalize 
     dialogue on regional security.

     SEC. 202. DECLARATIONS OF POLICY.

       Congress makes the following declarations:
       (1) A long-term United States strategy to curb illicit 
     narcotics trafficking must include Central America, which is 
     the corridor for 90 percent of the cocaine that transits from 
     South America to the United States.
       (2) It is in the interest of the United States to support a 
     long-term commitment to assisting the countries of Central 
     America to improve security by combating illicit narcotics 
     trafficking, investing in prevention programs, increasing 
     intelligence sharing, improving regional security 
     coordination, improving border and customs capabilities, 
     professionalizing police, justice, and other government 
     officials, and funding programs to reintegrate deportees from 
     the United States.
       (3) The countries of Central America are committed to 
     combating illicit narcotics trafficking and its related 
     violence and crime, including gang violence, and the United 
     States must seize the opportunity to work in partnership with 
     Central America.

          Subtitle A--Law Enforcement and Security Assistance

     SEC. 211. PURPOSES OF ASSISTANCE.

       The purposes of assistance authorized by this subtitle are 
     to--
       (1) enhance the ability of governments of countries of 
     Central America to control illicit narcotics production, 
     trafficking, illicit drug trafficking organizations, and 
     organized crime;
       (2) help build the capacity of law enforcement agencies of 
     the countries of Central America to control illicit narcotics 
     production, trafficking, illicit drug trafficking 
     organizations, and organized crime;
       (3) strengthen the bilateral ties of the United States with 
     the countries of Central America by offering concrete 
     assistance in this area of great mutual concern;
       (4) strengthen respect for internationally recognized human 
     rights and the rule of law in efforts to stabilize the 
     security environment relating to illicit narcotics production 
     and trafficking and organized crime; and
       (5) support the judicial branch of governments of the 
     countries of Central America, as well as to support anti-
     corruption efforts in such countries.

     SEC. 212. AUTHORIZATION OF ASSISTANCE.

       To carry out the purposes of section 211, the President is 
     authorized to provide assistance for the countries of Central 
     America to support the activities described in section 213.

     SEC. 213. ACTIVITIES SUPPORTED.

       Activities that may be supported by assistance under 
     section 212 include the following:
       (1) Counternarcotics, countertrafficking, and related 
     security.--
       (A) Assistance objectives.--To assist in the following:
       (i) Investigation and collection of intelligence against 
     illicit narcotics trafficking.
       (ii) Combating illegal trafficking in arms.
       (iii) Prevention of bulk currency smuggling.
       (iv) Collection of information on crime and establishment 
     of a regional database.
       (B) Assistance.--Activities under subparagraph (A) may 
     include--
       (i) automated fingerprint identification systems (AFIS);
       (ii) vetting sensitive investigative units to collaborate 
     on counternarcotics at the federal, state, and local levels;
       (iii) technical assistance to develop strong and effective 
     financial crimes investigation units;
       (iv) maritime security support, including refurbishing and 
     procuring patrol boats;
       (v) firearms interdiction training; and
       (vi) illicit narcotics demand reduction programs.
       (2) Public security and law enforcement.--To assist in 
     building the capacity of the police in countries of Central 
     America, supporting efforts to combat transnational gangs, 
     investing in gang prevention and rehabilitation programs, and 
     programs for the reintegration of deportees, including 
     assistance such as--
       (A) funding to continue the United States-Central American 
     Integration System (SICA) Dialogue;
       (B) youth gang prevention activities, including targeted 
     education for at-risk youth, vocational training and funding 
     of community centers in areas with high youth gang violence 
     rates and other risk factors;
       (C) programs to reintegrate deportees from the United 
     States back into the societies of their home countries to 
     avoid further criminal activity;
       (D) transnational anti-gang initiatives;
       (E) police professionalization, including--
       (i) training regarding use of force;
       (ii) human rights education and training;
       (iii) training regarding evidence preservation and chain of 
     custody; and
       (iv) enhanced capacity to vet candidates;
       (F) utilization of the International Law Enforcement 
     Academy (ILEA) in El Salvador consistent with traditional 
     respect for human rights and professional police practices;
       (G) police training programs of the Organization of 
     American States (OAS);
       (H) police equipment, including communications equipment; 
     and
       (I) anti-domestic violence education programs and women's 
     shelters.

     SEC. 214. LIMITATION ON ASSISTANCE.

       (a) Limitation.--No assistance may be provided under this 
     subtitle to any unit of the armed forces of a country of 
     Central America or any unit of the law enforcement agencies 
     of a country of Central America if the Secretary of State 
     determines that, consistent with section 620J of the Foreign 
     Assistance Act of 1961 (22 U.S.C. 2378d), there is credible 
     evidence that such unit has committed gross violations of 
     human rights.

[[Page 11986]]

       (b) Exception.--The limitation in subsection (a) shall not 
     apply if the Secretary of State determines and reports to the 
     appropriate congressional committees that the government of 
     the relevant country of Central America is taking effective 
     measures to bring the responsible members of the unit of the 
     armed forces or law enforcement agencies, as the case may be, 
     to justice.

     SEC. 215. AUTHORIZATION OF APPROPRIATIONS.

       (a) In General.--To carry out this subtitle, there are 
     authorized to be appropriated to the President $60,000,000 
     for fiscal year 2008, $80,000,000 for fiscal year 2009, and 
     $80,000,000 for fiscal year 2010.
       (b) Availability.--Amounts appropriated pursuant to the 
     authorization of appropriations under subsection (a) are--
       (1) authorized to remain available until expended; and
       (2) in addition to funds otherwise available for such 
     purposes, including funds under chapters 2 and 8 of part I of 
     the Foreign Assistance Act of 1961 (22 U.S.C. 2166 and 2291 
     et seq.).
       (c) Limitation.--Of the amounts appropriated pursuant to 
     the authorization of appropriations under subsection (a) for 
     any fiscal year, at least $15,000,000 should be made 
     available to carry out section 213(2)(B).

   Subtitle B--Assistance to Enhance the Rule of Law and Strengthen 
                         Civilian Institutions

     SEC. 221. AUTHORIZATION OF ASSISTANCE.

        The President is authorized to provide assistance for the 
     countries of Central America to support the activities 
     described in section 222.

     SEC. 222. ACTIVITIES SUPPORTED.

       Activities that may be supported by assistance under 
     section 221 include assistance in building the capacity, 
     transparency, and trust in the justice system of the 
     countries of Central America and reducing high impunity rates 
     in the countries of Central America, including assistance 
     such as--
       (1) improved police academies and entry level training on 
     crime investigations;
       (2) courts management and prosecutor capacity building;
       (3) witness and victim protection programs, including in 
     Guatemala in coordination with the United Nations 
     International Commission Against Impunity in Guatemala 
     (CICIG);
       (4) programs to enhance transparency in the procedures to 
     designate and remove personnel in the recipient country's 
     judicial system;
       (5) prosecutor and judge protection programs, including in 
     Guatemala and in coordination with the CICIG;
       (6) short-term assignment of United States Government 
     personnel to the CICIG to provide technical assistance for 
     criminal investigations, specifically but not limited to 
     investigations involving money laundering so long as this 
     assignment does not negatively impact United States domestic 
     operations;
       (7) regional juvenile justice reform;
       (8) prison management;
       (9) programs to rehabilitate gang members released from 
     prison, including job training; and
       (10) community policing, including human rights and use of 
     force training for community policing projects.

     SEC. 223. AUTHORIZATION OF APPROPRIATIONS.

       (a) In General.--To carry out this title, there are 
     authorized to be appropriated to the President $40,000,000 
     for fiscal year 2008, $50,000,000 for fiscal year 2009, and 
     $95,000,000 for fiscal year 2010.
       (b) Availability.--Amounts appropriated pursuant to the 
     authorization of appropriations under subsection (a) are--
       (1) authorized to remain available until expended; and
       (2) in addition to funds otherwise available for such 
     purposes, including funds available under chapters 2 and 8 of 
     part I of the Foreign Assistance Act of 1961 (22 U.S.C. 2166 
     and 2291 et seq.).

                  TITLE III--ADMINISTRATIVE PROVISIONS

     SEC. 301. CONDITIONS ON PROVISION OF ASSISTANCE.

       (a) In General.--The President may not provide assistance 
     under title I or II to a foreign country for a fiscal year 
     until the end of a 15-day period beginning on the date on 
     which the President transmits to the appropriate 
     congressional committees a determination that the 
     requirements described in subsection (b) have been met with 
     respect to the government of such foreign country for such 
     fiscal year.
       (b) Required Determination.--The requirements referred to 
     in subsection (a) are the following:
       (1) The provision of assistance will not adversely affect 
     the human rights situation in the foreign country.
       (2) Vetting procedures are in place to ensure that members 
     and units of the armed forces and law enforcement agencies of 
     the foreign country that may receive assistance under title I 
     or II have not been involved in human rights violations.
       (3) The civilian authority in the foreign country is 
     investigating and prosecuting any member of any government 
     agency or entity receiving assistance under title I or II who 
     has been credibly alleged to have committed human rights 
     violations on or after the date of the enactment of this Act.
       (4) Equipment and material provided as support is being 
     used only by officials and employees of the government of the 
     foreign country who have been approved by such government to 
     perform counternarcotics activities, including on the basis 
     of the background investigations by such government.
       (5) The government of the foreign country has cooperated 
     with the Secretary of State to ensure that--
       (A) the equipment and material provided as support will be 
     used only by the officials and employees referred to in 
     paragraph (4);
       (B) none of the equipment or material will be transferred 
     (by sale, gift, or otherwise) to any person or entity not 
     authorized by the United States to receive the equipment or 
     material; and
       (C) the equipment and material will, to the extent 
     possible, be used for the purposes intended by the United 
     States Government and will be utilized by those agencies for 
     which such assistance is intended.
       (6) The government of the foreign country has implemented, 
     in consultation with the Secretary of State, a system that 
     will provide an accounting and inventory of the equipment and 
     material provided as support.
       (7) The government of the foreign country will, along with 
     United States personnel, conduct periodic observation and 
     review of the use of the equipment and material provided as 
     support under terms and conditions similar to the terms and 
     conditions imposed with respect to such observation and 
     review under section 505(a)(3) of the Foreign Assistance Act 
     of 1961 (22 U.S.C. 2314(a)(3)).
       (8) To the extent the foreign country has received 
     equipment in the past, it has utilized the equipment properly 
     and in a manner that warrants additional provision of 
     equipment or assistance.

     SEC. 302. LIMITATIONS ON PROVISION OF ASSISTANCE.

       (a) Sense of Congress.--It is the sense of Congress that--
       (1) activities undertaken under titles I and II of this Act 
     should be performed wherever possible by official employees, 
     personnel, or officers of the federal, state, or local 
     government of the recipient foreign country; and
       (2) the United States should limit, to the maximum extent 
     possible, the number of United States civilians and foreign 
     nationals retained as contractors in a recipient country.
       (b) Limitations.--Except as provided in subsection (c)--
       (1) none of the funds made available to carry out title I 
     may be available for the employment of any United States 
     individual civilian retained as a contractor in Mexico or any 
     foreign national retained as a contractor if that employment 
     would cause the total number of individual civilian 
     contractors employed in Mexico in support of the Merida 
     Initiative who are funded by United States funds to exceed 
     50;
       (2) none of the funds made available to carry out title II 
     may be available for the employment of any United States 
     individual civilian retained as a contractor in a country of 
     Central America or any foreign national retained as a 
     contractor if that employment would cause the total number of 
     individual civilian contractors employed in all countries of 
     Central America in support of the Merida Initiative who are 
     funded by United States funds to exceed 100; and
       (3) none of the funds made available under this Act shall 
     be made available for budget support or cash payments.
       (c) Exception.--The limitations contained in subsection (b) 
     shall not apply if the President determines that it is in the 
     national interest of the United States that such limitations 
     shall not apply and transmits to the appropriate 
     congressional committees a notification thereof.

     SEC. 303. LIMITATION ON MONITORING.

       Beginning on October 1, 2009, no surveillance-related 
     equipment may be transferred under this Act to any entity of 
     Mexico or a country of Central America unless the President 
     determines that the recipient country has cooperated with the 
     United States to ensure that such equipment will be used 
     principally for the purposes for which it is provided.

     SEC. 304. EXEMPTION FROM PROHIBITION ON ASSISTANCE FOR LAW 
                   ENFORCEMENT FORCES.

       Notwithstanding section 660 of the Foreign Assistance Act 
     of 1961 (22 U.S.C. 2420; relating to the prohibition on 
     assistance to foreign law enforcement forces), the President 
     may provide assistance under title I or II if, at least 15 
     days before providing the assistance, the President notifies 
     the Committee on Foreign Affairs of the House of 
     Representatives and the Committee on Foreign Relations of the 
     Senate, in accordance with the procedures applicable to 
     reprogramming notifications pursuant to section 634A of the 
     Foreign Assistance Act (22 U.S.C. 2394-1), that (1) it is in 
     the national interest to provide such assistance, and (2) the 
     recipient country is making significant progress to 
     eliminating any human rights violations.

     SEC. 305. RELATIONSHIP TO OTHER AUTHORITY.

       (a) Assistance Under Title I.--The authority to provide 
     assistance under title I is in addition to any other 
     authority to provide assistance for Mexico.
       (b) Assistance Under Title II.--The authority to provide 
     assistance under title I is in addition to any other 
     authority to provide assistance for the countries of Central 
     America.

[[Page 11987]]



     SEC. 306. RULE OF CONSTRUCTION.

       Nothing in title I or II shall be construed to alter, 
     modify, or otherwise affect the provisions of the Arms Export 
     Control Act (22 U.S.C. 2751 et seq.) unless otherwise 
     specified in this Act.

           TITLE IV--SUPPORT ACTIVITIES IN THE UNITED STATES

     SEC. 401. REPORT ON REDUCTION OF DRUG DEMAND IN THE UNITED 
                   STATES.

       (a) Sense of Congress.--It is the sense of Congress that--
       (1) supply-side drug reduction strategies when executed 
     alone are not an effective way to fight the phenomenon of 
     illegal narcotics;
       (2) the Government of Mexico has identified reduction of 
     United States drug demand as among the most important 
     contributions the United States can make to a joint strategy 
     to combat illicit narcotics trafficking; and
       (3) the United States pledged in the United States-Mexico 
     October 2007 Joint Statement on the Merida Initiative, to 
     ``intensify its efforts to address all aspects of drug 
     trafficking (including demand related portions)'' here in the 
     United States.
       (b) Report.--Not later than 180 days after the date of the 
     enactment of this Act, the President shall transmit to the 
     appropriate congressional committees a report on the measures 
     taken to intensify United States efforts to address United 
     States demand-related aspects of the drug-trafficking 
     phenomenon in accordance with the Joint Statement on the 
     Merida Initiative announced by the United States and Mexico 
     on October 22, 2007.

     SEC. 402. REDUCTION OF SOUTHBOUND FLOW OF ILLEGAL WEAPONS.

       (a) Sense of Congress.--It is the sense of Congress that--
       (1) much of the increased violence in Mexico is perpetrated 
     using firearms and ammunition smuggled illegally from the 
     United States into Mexico;
       (2) the Bureau of Alcohol, Tobacco, Firearms and Explosives 
     (ATF) has told Congress of an ``iron river of guns'' with 
     thousands of weapons per week illegally crossing into Mexico 
     from the United States;
       (3) more than 90 percent of the guns confiscated yearly in 
     Mexico originate in the United States and approximately 40 
     percent of the total trafficked weapons are linked to drug 
     trafficking organizations;
       (4) along the 2,000 mile border from Brownsville, Texas, to 
     San Diego, California, there are 6,700 licensed gun sellers, 
     but only 100 Bureau of Alcohol, Tobacco, Firearms, and 
     Explosives (ATF) special agents to investigate allegations of 
     weapons trafficking and only 35 inspectors to ensure 
     compliance with United States laws;
       (5) on January 16, 2008, ATF announced that it will add 25 
     special agents and 15 inspectors to their Project Gunrunner 
     along the Southwest Border. And, the ATF budget request for 
     fiscal year 2009 includes funding for another 12 inspectors; 
     and
       (6) an effective strategy to combat these illegal arms 
     flows is a critical part of a United States contribution to a 
     jointly executed anti-narcotics strategy with Mexico.
       (b) Project Gunrunner Initiative.--
       (1) In general.--The Attorney General shall, to the extent 
     amounts are made available to carry out this subsection 
     pursuant to paragraph (4), use such amounts for the Project 
     Gunrunner initiative (hereafter in this subsection referred 
     to as the ``initiative'') of the Bureau of Alcohol, Tobacco, 
     Firearms, and Explosives to expand the resources provided to 
     identify, investigate, and prosecute individuals involved in 
     the trafficking of firearms across the United States-Mexico 
     border.
       (2) Activities.--In carrying out paragraph (1), the 
     Attorney General shall--
       (A) assign additional agents of the Bureau of Alcohol, 
     Tobacco, Firearms, and Explosives to the area of the United 
     States adjacent to the United States-Mexico border to support 
     the expansion of the initiative;
       (B) establish not fewer than 1 initiative team in each 
     State along the United States-Mexico border; and
       (C) coordinate with the heads of other relevant federal law 
     enforcement agencies and State and local law enforcement 
     agencies to address firearms trafficking in a comprehensive 
     manner.
       (3) Additional staff.--The Attorney General may hire 
     additional persons to be Bureau of Alcohol, Tobacco, 
     Firearms, and Explosives agents for, and may use such other 
     resources as may be necessary to adequately support, the 
     initiative.
       (4) Authorization of appropriations.--To carry out this 
     subsection, there are authorized to be appropriated to the 
     Attorney General $15,000,000 for each of the fiscal years 
     2008 through 2010.
       (c) Enhanced International Cooperation.--
       (1) In general.--In carrying out this subsection, the 
     Attorney General, in cooperation with the Secretary of State, 
     is authorized and encouraged, as appropriate, to--
       (A) assign agents of the Bureau of Alcohol, Tobacco, 
     Firearms, and Explosives to the United States mission in 
     Mexico, specifically in areas adjacent to the United States-
     Mexico border, to work with Mexican law enforcement agencies 
     in conducting investigations relating to firearms trafficking 
     and other criminal enterprises;
       (B) provide the equipment and technological resources 
     necessary to support investigations and to trace firearms 
     recovered in Mexico; and
       (C) support the training of vetted Mexican law enforcement 
     officers in serial number restoration techniques and canine 
     explosive detection.
       (2) Authorization of appropriations.--To carry out this 
     subsection, there are authorized to be appropriated to the 
     Attorney General $9,500,000 for each of the fiscal years 2008 
     through 2010.

     SEC. 403. REDUCTION OF SOUTHBOUND FLOW OF ILLEGAL PRECURSOR 
                   CHEMICALS AND BULK-CASH TRANSFERS.

       It is the sense of Congress that--
       (1) a significant quantity of precursor chemicals used in 
     the production of illegal narcotics flows south from the 
     United States to Mexico;
       (2) the Government of Mexico has identified reduction of 
     southbound flows from the United States of precursor 
     chemicals and bulk-cash transfers as a critical component of 
     its anti-narcotics strategy; and
       (3) an effective strategy to combat these illegal flows is 
     a critical part of a United States contribution to a jointly 
     executed anti-narcotics strategy with Mexico.

     SEC. 404. REPORT.

       Not later than 180 days after the date of the enactment of 
     this Act, the President shall transmit to the appropriate 
     congressional committees a report on the measures taken to 
     combat the southbound flow of illegal precursor chemicals and 
     bulk cash transfers into Mexico.

                   TITLE V--MISCELLANEOUS PROVISIONS

     SEC. 501. COORDINATOR OF UNITED STATES GOVERNMENT ACTIVITIES 
                   TO IMPLEMENT THE MERIDA INITIATIVE.

       (a) Declaration of Policy.--Congress declares that the 
     Merida Initiative is a Department of State-led initiative 
     which combines programs of numerous United States Government 
     departments and agencies and therefore requires a single 
     individual to coordinate and track all Merida-related efforts 
     government-wide to help avoid duplication and facilitate 
     accountability to Congress.
       (b) Designation of High-Level Coordinator.--
       (1) In general.--The President shall designate, within the 
     Department of State, a Coordinator of United States 
     Government Activities to Implement the Merida Initiative 
     (hereafter in this section referred to as the 
     ``Coordinator'') who shall be responsible for--
       (A) designing an overall strategy to advance the purposes 
     of this Act;
       (B) ensuring program and policy coordination among agencies 
     of the United States Government in carrying out the policies 
     in Mexico and Central America set forth in this Act;
       (C) ensuring that efforts of the United States Government 
     under this Act in Mexico and Central America are in full 
     consonance with the efforts of the Government of Mexico and 
     the governments of Central America in implementing the Merida 
     Initiative;
       (D) tracking all United States Government assistance which 
     fulfills the goals of the Merida Initiative or is closely 
     related to the goals of the Merida Initiative, including 
     information required under section 620J of the Foreign 
     Assistance Act of 1961 (22 U.S.C. 2378d) with respect to 
     Mexico and the countries of Central America;
       (E) coordinating among agencies of the United States 
     Government on all United States assistance to Mexico and the 
     countries of Central America, including assistance from other 
     relevant government agencies, which fulfills the goals of the 
     Merida Initiative to avoid duplication or conflict among 
     programs; and
       (F) consulting with the Attorney General with respect to 
     the activities of Federal, State, and local law enforcement 
     authorities in the United States related to the goals of the 
     Merida Initiative, particularly along the United States-
     Mexico border.
       (2) Rank and status of the coordinator.--The Coordinator 
     shall have the rank and status of ambassador.

     SEC. 502. METRICS AND OVERSIGHT MECHANISMS.

       (a) Sense of Congress.--It is the sense of Congress that--
       (1) to successfully support building the capacity of 
     recipient countries' civilian security institutions, enhance 
     the rule of law in recipient countries, and ensure the 
     protection of human rights, the President should establish 
     metrics and oversight mechanisms to track the effectiveness 
     of activities undertaken pursuant to this Act;
       (2) long-term solutions to Mexico and Central America's 
     security problems depend on strengthening and holding 
     accountable civilian institutions;
       (3) it is difficult to assess the impact of United States 
     assistance towards these goals absent specific oversight and 
     monitoring mechanisms; and
       (4) the President, in developing metrics, should consult 
     with Congress as well as the Government of Mexico and the 
     Central American Integration System (SICA).

[[Page 11988]]

       (b) Requirement.--The President shall develop metrics to 
     identify, track, and manage the progress of activities 
     authorized pursuant to this Act and use these metrics to 
     determine the allocation of resources for such activities.
       (c) Initial Report.--
       (1) In general.--Not later than 60 days after the date of 
     the enactment of this Act, the President shall transmit to 
     the appropriate congressional committees a report that 
     specifies metrics of achievement for each activity to be 
     undertaken under this Act.
       (2) Contents of report.--The report shall be divided into 
     two sections, the first addressing those activities 
     undertaken pursuant to subtitle A of title I and subtitle A 
     of title II, and the second addressing those activities 
     undertaken pursuant to subtitle B of title I and subtitle B 
     of title II. Metrics may include the following:
       (A) Indicators on long-term effectiveness of the equipment 
     and training provided to Mexican and Central American 
     security institutions.
       (B) Statistics of counter narcotics-related arrests.
       (C) Number of interdictions of drug shipments.
       (D) Specific progress on police reform.
       (E) Counternarcotics-related arrests.
       (F) Quantification of reduction of supply of illicit 
     narcotics into the United States.
       (G) Cross-utilization, if any, of equipment among the armed 
     forces and law enforcement entities.
       (H) Increased school attendance rates.
       (I) Attendance in primary prevention programs.
       (J) The level of cooperation among United States, Mexican, 
     and Central American law enforcement agencies.

     SEC. 503. REPORT.

       (a) In General.--The President shall transmit to the 
     appropriate congressional committees a report concerning the 
     programs and activities carried out under this Act during the 
     preceding fiscal year. The first report shall be transmitted 
     not later than 180 days after the date of the enactment of 
     this Act and subsequent reports shall be transmitted not 
     later than October 31 of each year thereafter.
       (b) Matters to Be Included.--The report required under 
     subsection (a) shall include the following:
       (1) Metrics.--A general description of the progress in 
     stabilizing the security situation in each recipient country 
     as well as combating trafficking and building its capacity 
     based on the metrics developed under section 502.
       (2) Coordination.--Efforts of the United States Government 
     to coordinate its activities pursuant to section 501, 
     including--
       (A) a description of all counternarcotics and organized 
     crime assistance provided to recipient countries in the 
     previous fiscal year;
       (B) an assessment of how such assistance was coordinated; 
     and
       (C) recommendations for improving coordination.
       (3) Transfer of equipment.--A description of the transfer 
     of equipment, including--
       (A) a description of the progress of each recipient country 
     toward the transfer of equipment, if any, from its armed 
     forces to law enforcement agencies;
       (B) a list of organizations that have used the air assets 
     provided to the government of each recipient country, and, to 
     the extent possible, a detailed description of those agencies 
     that have utilized the air assets, including a breakdown of 
     the percentage of use by each agency; and
       (C) a description of training of law enforcement agencies 
     to operate equipment, including air assets.
       (4) Human rights.--Consistent with sections 116(d) and 
     502B(b) of the Foreign Assistance Act of 1961 (22 U.S.C. 
     2151n(d) and 2304(b)) and section 504 of the Trade Act of 
     1974 (19 U.S.C. 2464), an assessment of the human rights 
     impact of the equipment and training provided under this Act, 
     including--
       (A) a list of accusations of serious human rights abuses 
     committed by the armed forces and law enforcement agencies of 
     recipient countries from the date of enactment of this Act; 
     and
       (B) a description of efforts by the government of recipient 
     countries to investigate and prosecute allegations of abuses 
     of human rights committed by any agency of the recipient 
     countries.
       (5) Effectiveness of equipment.--An assessment on the long-
     term effectiveness of the equipment and maintenance packages 
     and training provided to each recipient country's security 
     institutions.
       (6) Mexico public security strategy.--A description of 
     Mexico's development of a public security strategy, 
     including--
       (A) an update on the effectiveness of the Mexican federal 
     Registry of Police Personnel to vet police recruiting at the 
     National, state, and municipal levels to prevent rehiring 
     from one force to the next after dismissal for corruption and 
     other reasons; and
       (B) an assessment of how the Merida Initiative complements 
     and supports the Mexican Government's own public security 
     strategy.
       (7) Flow of illegal arms.--A description of efforts to 
     reduce the southbound flow of illegal arms.
       (8) Use of contractors.--A detailed description of 
     contracts awarded to private companies to carry out 
     provisions of this Act, including--
       (A) a description of the number of United States and 
     foreign national civilian contractors awarded contracts;
       (B) a list of the total dollar value of the contracts; and
       (C) the purposes of the contracts.
       (9) Central american regional security plan.--A description 
     of implementation by the countries of Central America of the 
     Central American Regional Security Plan, including an 
     assessment of how the Merida Initiative complements and 
     supports the Central American Regional Security Plan.
       (10) Phase out of law enforcement activities.--A 
     description of the progress of phasing out law enforcement 
     activities of the armed forces of each recipient country.
       (11) Displacement and diversion of drug trafficking 
     patterns.--A description of any displacement effect and 
     diversion of drug trafficking patterns from Mexico and the 
     countries of Central America to other routes, including 
     through potentially vulnerable Caribbean countries.
       (12) Impact on border violence and security.--A description 
     of the impact that activities authorized under this Act have 
     had on violence against United States and Mexican border 
     personnel and the extent to which these activities have 
     increased the protection and security of the United States-
     Mexico border.

     SEC. 504. SENSE OF CONGRESS.

       It is the sense of Congress that--
       (1) the United States Government requires an effective 
     public diplomacy strategy to explain the purposes of the 
     Merida Initiative; and
       (2) to the extent practicable, the Secretary of State, in 
     coordination with other relevant heads of agencies, shall 
     design and implement a public diplomacy campaign regionally 
     regarding the Merida Initiative.

     SEC. 505. SUNSET.

       The authority of this Act shall expire after September 30, 
     2010.

  The SPEAKER pro tempore. Pursuant to the rule, the gentleman from 
California (Mr. Berman) and the gentlewoman from Florida (Ms. Ros-
Lehtinen) each will control 20 minutes.
  The Chair recognizes the gentleman from California.


                             General Leave

  Mr. BERMAN. Madam Speaker, I ask unanimous consent that all Members 
may have 5 legislative days to revise and extend their remarks and 
include extraneous material on the bill under consideration.
  The SPEAKER pro tempore. Is there objection to the request of the 
gentleman from California?
  There was no objection.
  Mr. BERMAN. Madam Speaker, I rise in strong support of this bill and 
yield myself as much time as I may consume.
  Madam Speaker, the drug crisis facing the United States remains a top 
national security threat. The GAO states that 90 percent of illegal 
drugs entering our country transit the Central American-Mexican 
corridor.
  Drug gangs that operate in the United States, Mexico, and Central 
America are dangerously undermining the security environment for our 
neighbors to the south, and the spillover effects on our own soil are 
undeniable.
  President Calderon of Mexico made a brave decision early in his 
presidency to fight illegal narcotics in a way that no Mexican 
government had done before, and he and his countrymen have paid a high 
price for it. Drug cartels have been blamed for 6,000 deaths in two-
and-a-half years in Mexico alone, 4,000 of them in the year-and-a-half 
since Mr. Calderon assumed the presidency.
  A significant percentage of these deaths are law enforcement 
personnel, outgunned and outspent from the proceeds of illegal drugs. 
There seems to be no limit to the brazenness of the drug gangs. A month 
ago, the chief of Mexico's Federal police was shot dead in his own 
home.
  It is high time for the United States to do more than applaud 
President Calderon's courage. We must work together to tackle this 
difficult problem.
  President Bush and President Calderon met in the Mexican city of 
Merida last year to craft a new and innovative proposal to confront 
this scourge. That proposal is largely reflected in the legislation we 
have before us today.

[[Page 11989]]

  The central tenet of this bill is that, while the violence must stop 
and security must be restored, the ultimate solution to this problem 
lies in respect for the rule of law and the strength of institutions 
charged with upholding it.

                              {time}  1145

  H.R. 6028 represents the U.S. implementation of a new partnership 
with Mexico and Central American countries to face the immediate 
security threat of drug gangs, help these neighbors build the capacity 
of their law enforcement agencies, and enhance the rule of law in the 
region.
  As many of my colleagues know, the supplemental appropriations bill 
includes funding for year one of the Merida Initiative, but the 
legislation before us today authorizes the full 3 years of this plan in 
an exhaustive and complete manner necessary to undertake this critical 
partnership with our southern neighbors.
  For example, this legislation authorizes $1.6 billion over 3 years in 
the areas of counter-narcotics, the fight against organized crime, law 
enforcement modernization, institution building, and rule of law 
support.
  Mexico has requested that the U.S. provide certain high-tech 
equipment. And in this bill we authorize transport helicopters with 
night operating capabilities, aerial and radar surveillance equipment, 
land and maritime interdiction equipment, and secure communication 
networks.
  This legislation supports a variety of programs designed to enhance 
the transparency and capacity of civilian institutions at the Federal, 
State and local level. They include assistance in courts management, 
prison reform, money laundering capabilities, witness protection, and 
police professional- 
ization. The latter emphasizes human rights and use of force training, 
as well as forensics and polygraph capabilities.
  In the realm of prevention, the bill supports programs to increase 
school attendance and expansion of intervention programs. It also seeks 
to promote development in areas where joblessness feeds the narcotics 
problem, including alternative livelihood and rural development 
efforts.
  It concentrates considerable funding in the fragile Central America 
region, as well as in Haiti and the Dominican Republic, in programs 
tailored to that region's specific needs.
  The legislation contains significant human rights safeguards as well 
as end-use monitoring provisions for equipment and training. It 
provides no cash transfers.
  It calls on the President to devise standards up front that will be 
used to measure the success of the initiative, and to regularly report 
to Congress on progress made toward meeting these standards.
  Significantly, because this was a specific request from our Mexican 
neighbors, the legislation bolsters by $73.5 million America's efforts 
to stem the illegal flow of arms going south by significantly expanding 
ATF's Project Gun Runner.
  Finally, the bill establishes a coordinator for the initiative to 
provide accountability and harmonize its wide-ranging programs.
  Perhaps most importantly the legislation recognizes that the spread 
of illicit drugs through Mexico and Central America and into the United 
States, as well as the violence that accompanies it, cannot be halted 
without a comprehensive interdiction and security strategy planned and 
executed jointly with our southern neighbors. Madam Speaker, with this 
authorization of the Merida Initiative we demonstrate our Nation's 
commitment to work closely with our friends and neighbors to the south 
in a meaningful and long-term fashion to battle illegal narcotics.
  I strongly urge all my colleagues to support this legislation.
  Madam Speaker, I reserve the balance of my time.
  Ms. ROS-LEHTINEN. Madam Speaker, I yield myself such time as I may 
consume.
  Madam Speaker, I rise as a proud cosponsor of the Merida Initiative 
to Combat Illicit Narcotics and Reduce Organized Crime Authorization 
Act of 2008.
  Based on co-responsibility and cooperation, the Merida Initiative 
creates an invaluable partnership between the United States, Mexico, 
the rest of Central America, Haiti, and the Dominican Republic to work 
together to fight illicit drugs and organized crime. It is a historic 
opportunity, an essential collaboration between all of our countries to 
present a united front against the drug cartels and the gangs who 
callously threaten the safety and future of our communities every day.
  The growing operational and financial capabilities of these groups 
pose a clear and present threat to the lives and well-being of our 
citizens. By supporting this authorization, we are supporting the goals 
of the Merida Initiative to confront these dangers. Furthermore, we are 
supporting the goals of our friends in Mexico, Central America, Haiti 
and the Dominican Republic to combat these dangers as well.
  The Merida Initiative, as considered under this authorization, is a 
comprehensive program focused on strengthening democratic institutions, 
on bolstering law enforcement capabilities, on supporting local 
communities, and on promoting human rights at all levels of the 
Initiative's implementation.
  For years, drug traffickers and organized crime have used a regional 
strategy to carry out their illicit activities. Now, under the Merida 
Initiative, we have a chance for our governments to join forces and 
match this transnational approach. In Mexico, President Calderon has 
deployed nearly 30,000 soldiers and federal police to the country's 
most dangerous drug trafficking hotspots.
  In Guatemala, the government has announced plans to send hundreds of 
troops, elite presidential guards and antidrug police to its northern 
border to stem the growing violence.
  In the United States, our law enforcement agents have been met with 
increasing hostile actions while working to preserve the security of 
our borders.
  The Merida Initiative enables us to combine all of these efforts to 
capitalize on all of our strength and confront narcotraffickers and 
organized crime with the same determination that they so vigorously 
employ to wreak havoc on our communities.
  I was pleased to see that both the House and Senate versions of the 
supplemental included funding to support the Merida Initiative. I am 
hopeful that the conferees will look at this bill for direction when 
determining the final face of the Merida Initiative. I believe that it 
offers an effective guide for ensuring U.S. interest, while respecting 
our partners' sovereignty.
  For too long, narcotraffickers and organized crime have run free, 
plaguing the prosperity of our region. By supporting the Merida 
Initiative, we are making the way for democracy and for development to 
take hold, and addressing the precursor conditions that help breed 
instability in the region, and that help create fertile territory even 
for Islamic extremist recruitment.
  Madam Speaker, again I rise in full support of this initiative, and I 
look forwarding to helping to enhance our Nation's security by fighting 
and overcoming these daily threats.
  Madam Speaker, I reserve the balance of my time.
  Mr. BERMAN. Madam Speaker, I greatly appreciate the gentlelady's 
strong comments on this bill.
  I yield 4 minutes to the chairman of the Foreign Affairs Subcommittee 
on Western Hemisphere Affairs, the gentleman from New York (Mr. Engel).
  Mr. ENGEL. Madam Speaker, I rise today in strong support of H.R. 
6028. And I would like to commend Chairman Berman for his leadership on 
this important legislation that authorizes full funding for the Merida 
Initiative.
  In my subcommittee, as Chair, we held three hearings on the Merida 
Initiative, so we've covered it really quite extensively. And I'm more 
convinced than ever that this is such an important bill and such an 
important proposal.
  Recent events in Mexico make the Merida Initiative more crucial than 
ever. Just last month, the chief of the Mexican federal police was 
brutally murdered at his home. Shortly thereafter, the deputy police 
chief of Ciudad

[[Page 11990]]

Juarez, a city smack on the border with the United States, was shot 
dead.
  The narcoviolence in Mexico is not only undermining the safety and 
security of our friends to the south, but it is fueling the drug trade 
and violence here in the United States.
  As Western Hemisphere Subcommittee chairman, I worked with Chairman 
Berman in developing this legislation and was pleased to contribute two 
key parts. First, the Central American piece of this legislation 
authorizes a much greater amount of assistance for the subregion than 
the Bush administration proposed. The initial $50 million for Central 
America was really a drop in the bucket when you look at the whole 
thing and the needs that are necessary, especially considering that 90 
percent of the cocaine shipped from the Andes to the U.S. flows right 
through Central America.
  H.R. 6028 sets aside at least $15 million per year for youth gang 
prevention programs. That was something that I care very much about as 
well. With approximately 70,000 gang members in Central America, and 
the transnational connections linking gang members there to the United 
States, this is a vast improvement over the administration's proposal. 
I hope we have learned by now that failing to adequately invest in 
prevention programs will only hurt us in the future.
  I was also pleased to work with the chairman on a provision in H.R. 
6028 which establishes a Merida coordinator at the State Department. My 
staff and I have too often been frustrated by the inability to obtain 
information on Merida activities or to figure out who was responsible 
for what, and what would fall under Merida. The Merida coordinator will 
keep track of all U.S. government assistance, which fulfills the goals 
of the Merida Initiative.
  Madam Speaker, the Merida Initiative is moving on two legislative 
tracks; this authorization bill, and the supplemental appropriations 
bill. I understand that the Mexican Government has expressed concerns 
with certain language in the Senate supplemental proposal. It is my 
hope that the final product will include important human rights 
provisions while respecting Mexican sovereignty and the spirit of 
partnership in which the Merida Initiative was designed. Our 
relationship with our neighbors to the south is very important, and we 
need to work with them in a collaborative way and in a partnership.
  Mr. Chairman, I thank you again for your leadership on this important 
legislation and your commitment to the governments and people of 
Central America and Mexico.
  I urge my colleagues to support this crucial legislation. And I want 
to again say that it's important not only to have funds in there and 
language in there for Mexico, but for Central America, Haiti and the 
Dominican Republic as well.
  It's also important that we look at the whole situation of guns. Guns 
that are manufactured in the United States are smuggled over the 
border, and 90 percent of the guns that are collected come from the 
United States. And they fuel narcotrafficking, they fuel violence, they 
fuel the drug trade, and we need to do something about that. So I am 
pleased that my provision, the Southwest Border Violence Reduction Act, 
was incorporated into this language to look at this problem, to deal 
with this problem, and understanding that what we do in the United 
States goes hand in hand with what happens south of our border as well.
  So again, Mr. Chairman, I thank you. I thank the ranking member, with 
whom I've collaborated on so many things through the years.
  Ms. ROS-LEHTINEN. Mr. Speaker, I would like to yield 3 minutes to the 
gentleman from Ohio (Mr. Chabot). He is an esteemed member of our 
Committee on Foreign Affairs.
  Mr. CHABOT. I thank the gentlelady for yielding.
  Mr. Speaker, I'll be brief. Let me just start by saying that I 
appreciate both the chairman's and the ranking member's work on this 
critical issue. Drugs and cartels and the violence and terror that they 
bring not only undermine public safety but threaten our security as a 
Nation. We need to work cooperatively with those nations that are on 
the front lines of this drug war that we've been involved in for such a 
long time.
  However, I want to mention one fact that I think is very important. 
Last summer, news reports highlighted the unwillingness of the Mexican 
Government to work with the U.S. to resolve a mile and a half boundary 
dispute near Columbus, New Mexico. Because of a mapping error, the 
fence that we're building was constructed on Mexican land. Although the 
U.S. government promptly notified the Mexican Government of the error, 
the Mexican Government demands that the mistake be corrected at a cost 
of $3 million to the United States; this, despite the fact that the 
previously existing boundary had never been in dispute prior to 
notification by the U.S., and the fact that the U.S. has provided more 
than $270 million in aid to Mexico between 2004 and 2007, including 
more than $140 million for counter-narcotics and law enforcement.
  Today, we are authorizing funding for an additional $1.6 billion over 
3 years. Last July, I introduced House Resolution 545, which states 
that it is the sense of this Congress that if Mexico doesn't work 
together to resolve this boundary dispute, U.S. assistance to Mexico 
should be reduced in a corresponding amount; in other words, $3 
million. If it is costing the taxpayers of this country $3 million to 
do this, which was previously an undisputed border area, it seems like 
it ought to come out of their money and not ours, since we were the 
ones that brought it to their attention to begin with.

                              {time}  1200

  Now, some people up here in Washington may think that $3 million 
isn't a lot of money. Well I can tell you it is a lot of money to the 
folks back in my district and districts all over this country, 
particularly when you figure that we are spending approximately $4 a 
gallon for gas nowadays. So it is a lot of money and ought to be taken 
seriously.
  If the U.S. and Mexico are truly partners, and we claim to be, and 
they claim to be, we should be working together in all areas, including 
the construction of this fence. We ought to be working cooperatively in 
this matter. And it plays a key role in our international interdiction 
efforts, not to mention the border security.
  So this $3 million, if we are going to have to go back and rebuild 
this because of this good faith error, I believe that ought to be taken 
out of the U.S. aid which is going in their direction, and not from the 
U.S. taxpayer.
  Mr. BERMAN. Mr. Speaker, I yield myself 1 minute of time if I may.
  The gentleman from Ohio raises an issue of controversy between the 
United States and Mexico. What I urge the Members of this body to do is 
to focus on the purpose of this initiative. This is an initiative that 
is in America's deep national interest. The whole issue of illicit 
narcotics trade, the role of the corridor between Central America and 
Mexico in contributing and supplying these illicit narcotics, the war 
going on in Mexico between the drug cartels, and a president and a 
leadership that is now taking this head on serves our national 
interests. Our effort to stem illegal immigration is directly 
connected, and the effectiveness of it will be greatly dependent on our 
ability to stop these cartels and to smash this trade in illicit 
narcotics.
  Whatever one's concern is about a particular aspect of the U.S.-
Mexican relationship, I would suggest from America's interest point of 
view that this issue, this initiative, is a compelling one and should 
be supported.
  I am now pleased to yield 3 minutes to chairman of the Homeland 
Security Subcommittee on Transportation Security and Infrastructure 
Protection and a member of the Committee on Foreign Affairs, Ms. Sheila 
Jackson-Lee of Texas.
  Ms. JACKSON-LEE of Texas. Let me associate myself with the words of 
our chairman. This is in the interests of the American people. I thank 
Chairman Berman for introducing this legislation and the ranking 
member, as

[[Page 11991]]

well, for the collaboration that our committee, the Foreign Affairs 
Committee, always engages in.
  I think it is important to note that this is an initiative that was 
entered into by the United States and Mexico that announced a 
multiyear, $1.4 billion plan to use U.S. assistance to combat drug 
trafficking and other criminal organization activities. This has been 
labeled the ``Merida Initiative,'' and the administration has requested 
$500 million.
  Some would ask why? Because we are at a crisis. And I come from the 
State of Texas. There is bloodshed on the border. The violence is 
enormous. The wars between drug cartels have caused some 1,800 to 1,900 
deaths to Mexicans in the first 9 months of 2007. And it is 
attributable to the cartel-related violence. More than 60 American 
citizens have been kidnapped in Nuevo Laredo, a Mexican town directly 
across the border from the city of Laredo, a fine, wonderful city. And 
the mayors of those cities have come and asked for relief. But 
unfortunately, it hasn't been listened to in the way that I believe it 
could be. Recognizing that the violence or the cause is not Laredo or 
the border towns as much as it is the violence that is now spilling 
over.
  So I hope as we move forward in our initiative it will have a number 
of elements to it, and certainly one of the elements has to be the war 
against drugs here in the United States. It is important to note that 
Mexico is, in fact, the main foreign supply of marijuana and meth, and 
as well even though there is a small production of heroin, 
interestingly enough, they are a large producer of the heroin supply 
here in United States.
  And for this reason, there needs to be a number of collaborations. I 
disagree, for example, with the Secretary of Homeland Security, who 
says that we can't put the virtual fence at the border because he 
realizes that we are being conflicted by the questions of a barrier 
fence, reasonably so, because we are used to the ingress and egress of 
trade in that area. And so I hope this initiative will have a balance 
and recognize that we have to look at many options to secure the 
border.
  I want to also make mention of the fact that I am a member of the 
Homeland Security Committee and will hope, as this legislation moves 
forward, that we will have a collaboration with the Department of 
Homeland Security with this effort. You cannot make this work unless 
DHS is involved.
  And I was prepared to offer an amendment that dealt with assessing 
the role of the relevant United States Government departments and 
agencies, including the Department of Homeland Security, in supporting 
the Merida Initiative, providing specific information on what staff, 
equipment and other resources the relevant United States Government 
departments and agencies, including the Department of Homeland Security 
would need to support this initiative, and assessing the impact of the 
initiative on the border security operations of the relevant United 
States Government departments and agencies.
  The SPEAKER pro tempore. The time of the gentlewoman has expired.
  Mr. BERMAN. I yield the gentlelady 1 additional minute.
  Ms. JACKSON-LEE of Texas. I thank the chairman.
  Assessing the impact of the Merida Initiative on the border security 
operations of the relevant United States Government departments and 
agencies, including the Department of Homeland Security, and identify 
additional resources, if any, that the relevant United States 
Government departments and agencies, including the Department of 
Homeland Security, need to make available to carry out this initiative.
  I recall specifically as a member of the Subcommittee on Border 
Security writing legislation and the ranking member on the Immigration 
Subcommittee in our past Congresses on providing more resources for our 
Border Patrol. It was interesting that the administration was always 
voicing their leadership on the idea of border security, and our Border 
Patrol agents were suffering. There were not enough. They didn't have 
the kind of speedboats, night goggles and computers. Now you see it is 
like night and day because of legislation carried by members of the 
Democratic Caucus.
  And so it is important that as we go forward we find a collaboration 
of the Department of Homeland Security because human trafficking and 
drug trafficking are intertwined. The violation of the borders is 
intertwined with all we are doing here, and we need to have a 
collaboration with the Department of Homeland Security. I support this 
initiative, and I know it can be expanded.
  I rise today in cautious support of H.R. 6028, the ``Merida 
Initiative to Combat Illicit Narcotics and Reduce Organized Crime Act 
of 2008.'' I would like to thank my colleague Congressman Berman for 
introducing this legislation, as well as for his ongoing leadership as 
Chairman of the Committee on Foreign Affairs. While I do support this 
bill, I am extremely disappointed in the manner in which it was brought 
to the floor today. Like many Members, I have outstanding concerns 
about this legislation that have not yet been addressed, and I believe 
Members should have been given the opportunity to offer amendments to 
this important and far-reaching bill. I remain concerned about human 
rights in the region and I believe that the United States must do far 
more to address the demand for drugs in the United States, but I also 
believe that this legislation represents a positive step toward 
partnering with our southern neighbors to combat a problem that we 
share.
  Mr. Speaker, I had planned to introduce an amendment to this 
legislation that will require the President to submit a report
  (1) assessing the role of the relevant United States Government 
departments and agencies, including the Department of Homeland 
Security, in supporting the Merida Initiative;
  (2) providing specific information on what staffing, equipment, and 
other resources the relevant United States Government departments and 
agencies, including the Department of Homeland Security, have provided 
for the Merida Initiative;
  (3) assessing the impact of the Merida Initiative on the border 
security operations of the relevant United States Government 
departments and agencies, including the Department of Homeland 
Security; and
  (4) identifying additional resources, if any, that the relevant 
United States Government departments and agencies, including the 
Department of Homeland Security, need to make available to carry out 
the Merida Initiative.
  As a senior Member of the Committee on Homeland Security, I am 
cognizant of the fact that the Department of Homeland Security will 
play a major role in the implementation of the Merida Initiative. Among 
other things, Customs and Border Patrol will be involved in the 
procurement and training of non-intrusive inspection equipment 
(scanners, x-ray vans) and rescue and communications equipment, and 
Immigration and Customs Enforcement will be involved in modernizing 
Mexico's immigration database and the training of vetted units focused 
on anti-gang and anti-money laundering.
  In short, Mr. Speaker, the Merida Initiative will not be complete or 
successful without the cooperation of the Department of Homeland 
Security and the dedication of its brave men and women. The report 
required by my Amendment would have made sure Congress knows what 
resources DHS is contributing to the Merida Initiative and whether more 
are needed. It would also have let Congress know how the Merida 
Initiative is affecting DHS's ability to carry out its other missions, 
including border security. As we continue to fight criminal syndicates 
and terrorism organizations around the world, we must ensure that there 
is accountability for our precious resources and that we are not losing 
focus of the needs at home. I am extremely disappointed that this 
legislation has been brought up under suspension, as I believe that my 
amendment would have improved the legislation.
  On October 22, the United States and Mexico, in a joint statement, 
announced a multi-year, $1.4 billion plan to use U.S. assistance to 
combat drug trafficking and other criminal organizations. As part of 
this plan, known as the Merida Initiative, the Administration has 
requested $500 million for Mexico and $50 million for Central America 
in the FY 2008 Supplemental Appropriations. Since March 2007, when 
Presidents George W. Bush and Felipe Calderon met in Merida, officials 
of both governments, without the input of the legislative branch of 
either country, have been working on an initiative to expand bilateral 
and regional cooperation, in order to combat organized crime and 
criminal gangs in the region.
  Mexico has, in recent years, experienced an increase in drug 
violence. Much of the recent

[[Page 11992]]

violence has been attributed to turf wars between drug cartels, with 
between 1,800 and 1,900 deaths of Mexicans in the first nine months of 
2007 alone being attributed to cartel-related violence. More than 60 
American citizens have been kidnapped in Nuevo Laredo, a Mexican town 
directly across the border from the city of Laredo, in my own state of 
Texas. Some of this violence is reportedly spilling over the border 
into the United States.
  Spill-over violence and attacks on Americans are not the only reasons 
Mexico's drug trade is of intimate interest to the United States. 
Mexico is the main foreign supplier of marijuana and a major supplier 
of methamphetamine to the United States, and, though it produces only a 
small share of global heroin production, it produces a sizeable 
proportion of the heroin distributed in the United States. In addition 
to production of drugs, Mexico is also a major transit country. 
According to State Department estimates, 90% of the cocaine entering 
the United States transits through Mexico.
  With the demise of powerful cartels in Colombia, Mexican drug cartels 
have recently become increasingly significant. According to the 
National Drug Intelligence Center, Mexican cartels now dominate the 
illicit U.S. drug market, using ``well-established overland 
transportation networks to transport cocaine, marijuana, 
methamphetamine, and heroin--Mexican and increasingly South American--
to drug markets throughout the country.'' Though Colombian groups 
retain a significant share of smuggling and distribution operations in 
the United States, the operations of Mexican groups continue to account 
for an increasingly large percentage of the market.
  Recent years have indicated that much more needs to be done to 
address issues of drug production and trafficking in Mexico. While I 
certainly agree that the Merida Initiative represents an important and 
much needed effort, I am extremely disappointed that neither members of 
the U.S. nor the Mexican congress were included in the discussion 
process. In addition, I have significant concerns about the initiative 
itself, and I believe there are many outstanding issues that remain to 
be addressed.
  Mr. Speaker, I do not believe we can address the problem of drug 
trafficking by combating the supply side alone. This legislation does 
require the President to submit a report on efforts to reduce demand in 
the United States, and I believe that this language is extremely 
important, acknowledging that this is not just a foreign issue. I would 
like to see this Congress take a more active role in reducing the 
prevalence of drug use and addiction in our own communities, in 
conjunction with working to eliminate the flow of drugs across our 
borders.
  Mr Speaker, it is essential that this Committee stay engaged with 
this program after it is implemented, particularly monitoring its 
effects on human rights. U.S. dollars absolutely should not be going to 
fund abuses; they should be used to build a culture of respect for 
fundamental human rights. To this end, I am pleased that this 
legislation states that one of the purposes of this initiative is to 
``strengthen respect for internationally recognized human rights and 
the rule of law in efforts to stabilize the security environment 
relating to the illicit narcotics production and trafficking and 
organized crime.'' Further, this legislation restricts funding to any 
units known to commit gross violations of human rights, provides 
assistance for human rights training in relevant law enforcement units, 
and, perhaps most crucially, requires the President to report to 
Congress on the human rights impact of the equipment and training 
provided in this bill. Mr. Speaker, this language is important, but 
alone it is not enough, and I fully expect that this committee will 
remain engaged in this important issue following the implementation of 
this program.
  Mr. Speaker, despite my outstanding concerns and my disappointment 
over the manner in which this legislation was brought before us today, 
I do believe that this legislation will strengthen the bonds of 
cooperation with our southern neighbors on an important issue in which 
we all share a stake. I urge my colleagues to join me in supporting 
this legislation.
  Ms. ROS-LEHTINEN. Mr. Speaker, at this time, I am pleased to yield 3 
minutes to the gentleman from Texas (Mr. McCaul) who is also an 
esteemed member of the Committee on Foreign Affairs.
  Mr. McCAUL of Texas. I thank the gentlelady from Florida.
  Mr. Speaker, let me say first that I support a military strategy to 
deal with the drug cartels. Having come from Texas, having worked 
counterterrorism with the Justice Department at the Mexican border, I 
know firsthand what a direct threat to the security of this Nation 
these drug cartels present. They export drugs. They poison our 
children. They export human trafficking. They bring special interest 
aliens into this country, some of whom are not caught. And in the post-
9/11 world, they present a threat that we can no longer ignore. And 
they must be dealt with. That is why I have been supportive of this 
initiative.
  However, I believe that we need a strategy on this side of the 
border, as well. I believe we need a two-pronged approach, if you will, 
a comprehensive strategy that deals not only with the Mexican side but 
with the U.S. side. And for too long, our border sheriffs and our 
Border Patrol agents have been outmanned and outgunned. And if we are 
going to provide assistance to Mexico, it seems to me we ought to be 
providing assistance to our men and women on our side fighting this war 
every day.
  I had a unique opportunity to meet with President Calderon. He told 
me that he is at war with the drug cartels. He is at war with these 
drug cartels. And we need to fight this war against the drug cartels.
  And I believe the best way to do that is provide the military 
assistance, but also provide the resources necessary on this side of 
our border, which is why I offered an amendment at the foreign affairs 
markup of this bill to provide $1.4 billion, an equal amount, if you 
will, over 3 years for our Federal, State and local law enforcement, 
including the border sheriffs. And Chairman Berman was supportive of 
this amendment. The chairman sits on the Judiciary Committee. It was my 
sincere hope that this amendment would have been taken up by the 
Judiciary Committee when they marked up this bill, as well.
  Unfortunately, that didn't happen. And the Judiciary Committee 
decided not to take up this bill. In addition, instead of having an 
open rule whereby it could offer this amendment on the floor, we have a 
closed rule, and this vote is now under suspension. I believe this is a 
missed opportunity. I believe it is a missed opportunity to have a 
really comprehensive bill that could have had strong bipartisan 
support, that had the approach and the strategy that I just outlined, a 
military strategy on the Mexican side of the border, and a beefed up 
law enforcement on this side of the border. That is how we are going to 
achieve true border security in this Nation. So I just wanted to 
present that objection.
  It is my sincere hope we can fix this and add this amendment at some 
point in the process to give our law enforcement on this side of the 
border the tools that they need, also, to win this war against the drug 
cartels.
  Mr. BERMAN. Mr. Speaker, I reserve my time.
  Ms. ROS-LEHTINEN. Mr. Speaker, I am pleased to yield 3 minutes to the 
gentleman from Texas (Mr. Poe), an esteemed member of the Foreign 
Affairs Committee.
  Mr. POE. I thank the gentlelady for yielding.
  Mr. Speaker, I appreciate the work that the chairman and the ranking 
member have done on this initiative. However, I rise in opposition to 
this legislation before the House. As a former prosecutor and longtime 
judge in Texas, I am concerned about drugs and violence on the border, 
but I am also concerned about corruption.
  According to the DEA, 500 people were murdered in Nuevo Laredo in 
2005. None of those cases was solved. Many of those murdered were 
police officers. There have been 400 kidnappings in Nuevo Laredo. 
Forty-one of them were American citizens. None of them have been 
solved.
  I doubt if anyone would be surprised to find out that the drug 
cartels are to blame for most of the violence on the border. What you 
might be surprised to learn is that U.S.-trained Mexican forces are 
behind some of the attacks. The Department of Homeland Security has 
reported that in the last 10 years, there have been over 250 incursions 
by suspected Mexican military units into the United States.
  In order to gain control of access corridors in the United States, 
drug cartels are hiring hit men from an elite force in Mexico's 
military. This group

[[Page 11993]]

is known as the ``Zetas.'' It has been reported that some of the Zetas 
are military deserters that may have been trained in the United States 
at the former School of the Americas in Fort Benning, Georgia. Reports 
claim that these forces were sent by the Mexican Government to the 
United States-Mexico border to combat drug trafficking. Instead, some 
of them deserted and became assassins for the Mexican drug cartels. 
Officials suspect that there are more than 200 Zetas. Between January 
and September of last year, nearly 5,000 Mexican soldiers deserted. 
Many of them went to work for the drug cartels because they pay more 
money.
  The bill before the House today would authorize $1.5 billion in 
money, training and equipment over the next 5 years to Mexico. Most of 
that amount, more than $1 billion, would go, as I said, to Mexico. And 
Mexico in its arrogance objects to any conditions we want to put on 
this money. The administration can offer us no assurance that our 
equipment and training won't be used against us and neither can Mexico.
  These forces are violent. They kill people and are a danger to the 
enforcement of our border, especially to our sheriffs. We've tried to 
work with Mexico in the past to stop drug trafficking. Every new 
president talks about how they are going to stop the drug trade, but it 
never has worked. Why should we send $1 billion to Mexico when we have 
no idea whether the goods we send will end up in the hands of corrupt 
Mexican officials and be used against us? Rather than sending all this 
money and equipment to Mexico and the lawless Mexican officials at the 
border, we ought to be equipping United States border sheriffs who can 
use this equipment to protect our homeland. We need to keep our money 
on this side of the border where we need it and where we can keep up 
with it.
  And that's just the way it is.
  Mr. BERMAN. Mr. Speaker, I reserve the balance of my time.
  Ms. ROS-LEHTINEN. Mr. Speaker, I am proud to yield 3 minutes to the 
gentleman from Illinois (Mr. Weller), a member of the Committee on Ways 
and Means. We will miss him greatly when he retires.
  Mr. WELLER. Mr. Speaker, I rise in support of this important 
initiative, the Merida Initiative, to combat illicit narcotics and 
reduce organized crime authorization legislation. I commend Chairman 
Berman, Chairman Engel and Ranking Member Ros-Lehtinen for their work 
in putting together bipartisan legislation that implements not only a 
bipartisan agreement but also an international agreement with our 
neighbor and our neighbors to the south.
  Ladies and gentlemen, think of it in these terms, if in the last few 
months the director of the FBI had been assassinated by 
narcotraffickers, think about it if the head of the Drug Enforcement 
Administration had been assassinated by narcotraffickers, think about 
it if dozens of police chiefs were shot down in the streets and 
murdered in their homes in front of their families, how would we as 
Americans react?

                              {time}  1215

  Would we ask for help and want every resource we could put in place 
to go after those who committed those horrible crimes?
  Ladies and gentlemen, in Mexico, our friend, our ally, our partner in 
so many ways, that has been occurring, where the head of their 
counternarcotics program was assassinated, where police chiefs are 
being shot down, where the narcotraffickers have been so brazen they 
have publicly posted signs listing police officers and police chiefs 
that they intend to target for assassination, and at the same time, 
saying ``come join us. We will pay you better if you are in law 
enforcement today. Switch sides. You will be paid more.''
  Well, today we have a President in Mexico, President Calderon, who 
decided to take the fight to the narcotraffickers. He has deployed 
30,000 Mexican troops against narcotraffickers throughout Mexico, for 
the first time, and they have asked for our help. Both our friends in 
Mexico and our friends in Central America have asked our help with this 
fight.
  That is why this legislation is important, because we have an 
obligation to help our neighbors; because by stopping the flow of drugs 
it affects other issues, policy concerns many of us have talked about. 
Number one is the flow of drugs into our country. And if you care about 
illegal immigration, if that has been a point you have debated on this 
floor, you argued we have got to do something about illegal 
immigration, well, frankly, safe streets and communities in Mexico and 
Central America are vital to ensuring that families and their children 
feel safe in their own communities, rather than having to leave for the 
United States illegally for a safe place to live.
  And if you if you care about the arguments that many have made that 
narcotraffickers are crossing our borders and the Mexicans need to do 
more, well, they are. Again, 30,000 Mexican troops have been deployed 
against the narcotraffickers. Unfortunately, in many cases 
narcotraffickers are equally or better armed than the Mexican military.
  That is why this legislation is needed. That is why this legislation 
needs bipartisan support. I urge bipartisan support.
  Mr. BERMAN. Mr. Speaker, I continue to reserve the balance of my 
time.
  Ms. ROS-LEHTINEN. Mr. Speaker, I am pleased to yield 3 minutes to the 
gentleman from California (Mr. Bilbray).
  Mr. BILBRAY. Mr. Speaker, FDR made a statement about why he was 
giving aid to England to fight Nazi Germany, and that statement was, 
when your neighbor's home is burning, only a fool would not let them 
borrow your hose to put out the fire.
  Well, Mr. Speaker, our border is burning. Mexico is in flames with 
violence. We are not taking on a war on drugs down at the border; we 
are taking on the battle against narco-terrorism.
  Mr. Speaker, I have taken a lot of positions about the fact that the 
boarders are out of control, but now is the time the American people 
have to wake up and this Congress has to wake up and realize that the 
people in Mexico are fighting desperately for their republic. They are 
being murdered in the streets. Police chiefs on the day they do a press 
conference stating that they caught a cartel smuggling drugs into San 
Diego County through a tunnel, the day that they do that press 
conference, that night that police chief is murdered by the cartel. The 
head of their law enforcement, who is comparable to our FBI, was 
murdered in their capital.
  You may say, but is Mexico doing enough? I have a lot of 
disagreements with Mr. Calderon. The justification for ignoring the 
cartel when they smuggle aliens is one of them. But the same cartel 
that is smuggling aliens and drugs into the United States are killing 
law enforcement and judges and politicians in Mexico.
  And do not think that this is a problem far away from us. This 
problem is in our front yard, in our backyard, in our lap right now. 
Washington can ignore it, but they are already starting to kidnap and 
kill people in San Diego County in the south. We have an obligation to 
make sure that we fight this battle on Mexican soil before it becomes a 
battle in the main streets of the United States.
  I ask us to join now. The fact is if there is anything that we can 
do, we need to defend our American freedom and our security when and 
where we find the threat, and the threat today is in Mexico. Calderon 
has been brave enough to export criminals to the United States. He has 
judges being killed right and left down there. Mexico is willing to 
work with us on this and desperately asking for our help, and only a 
fool would not give them the help to fight the battle on Mexican soil 
before we are fighting it on U.S. soil.
  Mr. BERMAN. Mr. Speaker, I reserve the balance of my time.
  Ms. ROS-LEHTINEN. Mr. Speaker, I would like to yield 30 seconds to 
the gentleman from Texas (Mr. Culberson).
  Mr. CULBERSON. Mr. Speaker, at a time of record national debt and 
deficit, at a time when gasoline prices are

[[Page 11994]]

now well over $4, when oil is over $130 a barrel and Mexico is sitting 
on one of the largest oil reserves in the world, it is inexcusable, it 
is intolerable for us to send one dime to the Mexican Government when 
they can afford to pay for this equipment themselves.
  But even more importantly than that, our southern border not secure. 
We should not send a dime to Mexico until our own American law 
enforcement officers have the resources they need to secure the border 
once and for all; not one dime to Mexico until the American border is 
secure.
  I am going to call for a record vote on this bill, because we need to 
defeat this legislation until our southern border is secure.
  Mr. BERMAN. Mr. Speaker, I yield 2 minutes to the gentleman from 
Texas (Mr. Hinojosa).
  Mr. HINOJOSA. Mr. Speaker, I rise today in support of an issue of 
great importance to both the Nation and my congressional district in 
south Texas.
  As a life-long resident of the southern border region, America's 
relationship with Mexico is of great importance to me, to my 
constituents, our chambers of commerce and economic development 
corporations.
  For far too long, our Nation has focused its attention upon far-away 
lands on the other side of the world while our relationship with our 
closest of neighbors has languished. While current and past 
administrations shoulder much of the blame for our history of 
inattention to Mexico, Congress has been complicit in this failure.
  When our Nation has needed to show compassion and understanding for 
the Mexican people, this Congress has been unable to agree on a 
comprehensive immigration plan befitting our American heritage. When 
our Nation should be celebrating our partnership and common interests 
with a close geographic ally, this Congress has literally built a wall 
between ourselves and Mexico.
  This is no way to treat a friend and neighbor and actually our second 
largest trading partner. Although not a solution to all of the 
deficiencies in our relationship with Mexico, the Merida Initiative is 
a step in the right direction. Border residents are keenly aware of the 
violence and dangers of the drug trade and the criminal networks that 
span our continent. While based within Mexico, these criminal cartels 
are an affliction of the entire continent and must be addressed through 
national partnerships and cooperation.
  We were there in Monterrey yesterday with a large delegation of 
Members of Congress and the Senate and we heard from and had a great 
dialogue with the congressmen and senators of that country. They are 
the ones who are fighting this battle for us.
  The SPEAKER pro tempore (Mr. Holden). The time of the gentleman from 
Texas has expired.
  Mr. BERMAN. I yield the gentleman an additional 30 seconds.
  Mr. HINOJOSA. They are the ones who are at the forefront as Colombia 
and other countries are bringing their drugs through Mexico, and they 
are the ones who have to fight it. They are the ones who have given up 
their lives. They are the ones who are helping us fight the drug 
cartel.
  I ask my colleagues to please join me in supporting this important 
initiative.
  Ms. ROS-LEHTINEN. Mr. Speaker, I know we only have 1 minute 
remaining, so I would like to yield myself that remaining minute to 
close on our side on the Merida Initiative.
  I would like to point to the testimony that was given by an official 
of the Department of Homeland Security when he testified on the 
importance for the United States of the Merida Initiative, because this 
is not a bill for Mexico. This is not a legislative bill for Central 
America. This is not for Haiti. This is not for the Dominican Republic. 
This is for the United States citizens. This is to protect our homeland 
from these vicious gangs and these drug dealers.
  As this gentleman said, rather than simply giving money to foreign 
governments, the Merida Initiative has been tailored to provide our 
foreign partners with the specific tools they each need to fight 
transnational organized crime and work cooperatively with us in the 
United States. This is a bill that will help our communities, our 
country, our national security and our children.
  Mr. Speaker, I yield back the balance of my time.
  Mr. BERMAN. Mr. Speaker, may I inquire how much time I have left.
  The SPEAKER pro tempore. The gentleman has 2\1/2\ minutes remaining.
  Mr. BERMAN. Mr. Speaker, I yield such time as he may consume to the 
gentleman from Texas (Mr. Gene Green), a member of the committee.
  Mr. GENE GREEN of Texas. Mr. Speaker, I want to thank my chairman of 
the Foreign Affairs Committee. This is my first term on the Foreign 
Affairs Committee. But I am not here necessarily as a committee member. 
I am here as a Member of Congress from Texas concerning the 
relationship Texas has had with Mexico for generations, if not 
centuries, and the relationship that we need to continue.
  There is literally a battle going on in Mexico, our closest neighbor, 
and there has been an effort to try and support them in their battle 
with narcotics and narco-terrorism, and that is what this bill is 
about.
  Whatever Mexico has been doing in their country is actually 
protecting those of us in Texas and California and all over the United 
States, because if they slow that situation down or win that battle, it 
makes our citizens and our people a lot safer.
  We should help our local police even more. We should do a lot of 
things. But that is a whole separate piece of legislation. What we are 
talking about here is stepping up to the plate and helping a neighbor 
who is our closest neighbor and one who is in the middle of a war and 
losing police chiefs, law enforcement officers, the military. Whatever 
they do in their own country to take care of thisi problem will make us 
safer in our own.
  There are some concerns about human rights, and I want to address 
that, but I would hope we would address it with members of Congress 
from Mexico. When I met with those members from both the Senate and the 
Chamber of Deputies in Mexico, they were concerned about some of the 
human rights violations in our country. We have to share that 
information and work with each other. Again, we are not moving, Mexico 
is not moving, and we need to make sure we work as a partnership with 
Mexico in their efforts to control their own country.
  I thank the gentleman for yielding.
  The SPEAKER pro tempore. The gentleman from California has 30 seconds 
remaining.
  Mr. BERMAN. Mr. Speaker, I include for the Record an exchange of 
letters between the distinguished chairman of the Committee on the 
Judiciary and myself.

                                         House of Representatives,


                                   Committee on the Judiciary,

                                     Washington, DC, June 6, 2008.
     Hon. Howard L. Berman,
     Chairman, Committee on Foreign Affairs, House of 
         Representatives, Washington, DC.
       Dear Chairman Berman: This is to advise you that, as a 
     result of your working with us to make appropriate revisions 
     to provisions in H.R. 6028, the Merida Initiative to Combat 
     Illicit Narcotics and Reduce Organized Crime Authorization 
     Act of 2008, that fall within the rule X jurisdiction of the 
     Committee on the Judiciary, we are able to agreed to 
     discharging our committee from further consideration of the 
     bill in order that it may proceed without delay to the House 
     floor for consideration.
       The Judiciary Committee takes this action with the 
     understanding that by forgoing further consideration of H.R. 
     6028 at this time, we do not waive any jurisdiction over 
     subject matter contained in this similar legislation. We also 
     reserve the right to seek appointment of an appropriate 
     number of conferees to any House-Senate conference involving 
     this important legislation, and request your support if such 
     a request is made.
       I would appreciate your including this letter in the 
     Congressional Record during consideration of the bill on the 
     House floor. Thank you for your attention to this request, 
     and for the cooperative relationship between our two 
     committees.
           Sincerely,
                                                John Conyers, Jr.,
                                                         Chairman.

[[Page 11995]]

     
                                  ____
                                         House of Representatives,


                                 Committee on Foreign Affairs,

                                     Washington, DC, June 6, 2008.
     Hon. John Conyers, Jr.,
     Chairman, Committee on the Judiciary, House of 
         Representatives, Washington, DC.
       Dear Mr. Chairman: Thank you for your letter regarding H.R. 
     6028, the Merida Initiative to Combat Illicit Narcotics and 
     Reduce Organized Crime Authorization Act of 2008.
       I appreciate your willingness to work cooperatively on this 
     legislation. I recognize that the bill contains provisions 
     that fall within the jurisdiction of the Committee on the 
     Judiciary. I acknowledge that the Committee will not seek a 
     sequential referral of the bill and agree that the inaction 
     of your Committee with respect to the bill does not waive any 
     jurisdiction of the Judiciary Committee over subject matter 
     contained in this bill or similar legislation.
       Further, as to any House-Senate conference on the bill, I 
     understand that your committee reserves the right to seek the 
     appointment of conferees for consideration of portions of the 
     bill that are within the Committee's jurisdiction.
       I will ensure that our exchange of letters is included in 
     the Congressional Record during the consideration of House 
     debate on H.R. 6028, and I look forward to working with you 
     on this important legislation. If you wish to discuss this 
     matter further, please contact me or have your staff contact 
     my staff.
           Cordially,
                                                 Howard L. Berman,
                                                         Chairman.

  I urge very strongly, don't make the best the enemy of the better. 
This is a very important proposal for the American people, for our 
interests. Yes, more police here, more Border Patrol, better 
technology, better employer verification. But understand what is going 
on in Mexico. This is a compelling initiative for our interests.
  I urge an ``aye'' vote.
  Ms. LORETTA SANCHEZ of California. Mr. Speaker, I rise in support of 
H.R. 6028, the Merida Initiative to Combat Illicit Narcotics and Reduce 
Organized Crime Authorization Act of 2008. H.R. 6028 creates a 
foundation for future cooperation in assisting our neighbors to the 
south in combating the rise of organized crime.
  This legislation is a good starting point but much more work will 
need to be done, including significant transnational and interagency 
cooperation, in order to ensure the success of the Merida Initiative. I 
was disappointed that the House Homeland Security Committee was not 
included in the development of this bill, despite the fact that the 
Department of Homeland Security will play a large role in the 
Initiative by coordinating its agencies that are already assisting 
Mexico and other foreign governments to address smuggling, trafficking 
and violence on our borders.
  Last week the Homeland Security Subcommittee on Border, Maritime, and 
Global Counterterrorism, which I have the privilege of chairing, had a 
hearing entitled ``The Merida Initiative: Examining U.S. Efforts to 
Combat Transnational Criminal Organizations.'' This hearing highlighted 
the importance of the Merida Initiative in stemming the growing 
transnational crime in the United States and on our borders. For 
example, in my home district in Orange County, CA, gang violence is on 
the rise as a result of the huge presence of the largest transnational 
gang in the United States, Mara Salvatrucha, in Los Angeles County. It 
is reported that there are over 900 members of Mara Salvatrucha in Los 
Angeles County, and many of these gang members are in the United States 
illegally. The rise of this type of gang in the United States can be 
linked to a practice by many of the drug cartels of ``contracting out'' 
drug, ammunition, and weapon smuggling activities to these gang 
members. The Homeland Security hearing emphasized that many agencies, 
including the Department of Homeland Security will need to work 
together closely to stop these growing transnational crime networks.
  H.R. 6028 must ensure interagency cooperation within the United 
States in order to succeed abroad with the foreign governments we seek 
to assist. As I stated earlier, much more needs to be done in order to 
help stem the violence along the U.S. and Mexican border, but this bill 
helps build the necessary foundation. I urge my colleagues to support 
this bill and to help ensure further cooperation between the key 
departments involved in its implementation.
  Mr. McGOVERN. Mr. Speaker, I rise reluctantly in opposition to this 
bill.
  I applaud the Chairman of the House Foreign Affairs Committee, my 
friend and colleague Congressman Berman, for asserting the role of the 
Congress and making sure that new initiatives such as the Merida 
Initiative are authorized. It is the right thing to do, and I look 
forward to working with him over the coming weeks on a number of 
foreign policy matters pending before the Committee.
  There is much to support in H.R. 6028, and there are also several 
troubling matters.
  Regarding the provisions of the bill that deal with Central America--
a region of Latin America that is very close to my heart--I believe 
H.R. 6028 takes several important steps forward, seriously investing in 
community-based solutions to youth and gang problems. H.R. 6028 
provides strong support to non-security programs that address the 
endemic conditions giving rise to violence related to drugs, arms and 
human trafficking. It provides support for the U.N. International 
Commission Against Impunity in Guatemala (CICIG), especially in the 
areas of witness and victim protection, an initiative that merits the 
very strongest support by the United States and the international 
community. The bill also seeks to promote transparency and an end to 
impunity throughout Central America by strengthening police and 
judicial systems so that they may more effectively and successfully 
carry out investigations and prosecutions of those responsible for 
human rights violations and other criminal acts.
  This is all very good news, Mr. Speaker.
  I am very concerned that this authorizing bill fails, however, to 
reflect the thoughtful and critically important human rights conditions 
contained in the Senate and House versions of the FY 2008 supplemental 
appropriations on military and security-related aid to Mexico. I 
understand that those proposed conditions are controversial in Mexico, 
in large measure because of the history of the very problematic drug 
certification process that existed in the past. I do not believe that 
the human rights conditions included in the supplemental appropriations 
bill bear any resemblance to the flawed drug certification process, and 
the House and Senate Appropriations Committees took great care not to 
mirror that flawed certification process.
  By failing to include the conditions on aid provided for the Merida 
Initiative that are included in the Senate and House supplemental 
appropriations bills, passage of this authorizing measure could be 
viewed as an effort to weaken or eliminate those provisions from the 
final conference report on the supplemental that will soon be sent to 
the President for his signature. It is my sincere (hope that this is 
not the intention of bringing H.R. 6028 to the House floor at such a 
delicate moment. There was no reason to rush this bill before the 
House, since we know it has no counterpart on the Senate side. So its 
consideration today invites concern that its passage is indeed an 
attempt to influence conference negotiations on the supplemental and to 
send a message that human rights conditions are not welcome, and 
certainly not the stronger, more specific conditionality included in 
the Senate version of the FY08 supplemental appropriations.
  Mr. Speaker, there is no doubt that America wants to be a good 
partner with Mexico on fighting drugs and ending corruption and human 
rights violations within Mexico's judicial system and its military and 
police. Over the past several weeks we have all seen the effects of the 
bloody rampage carried out by the drug cartels, especially those 
targeted at assassinating key officers and members of the Mexican 
National Police. I hope in other legislation that may come before the 
House this year that we will pay special attention to investing in drug 
education, prevention and treatment programs, as well as our own law 
enforcement agencies, so that U.S. demand for illegal drugs will also 
be forcefully and substantially addressed.
  But we cannot simply write blank checks and fail to ensure that our 
aid is not subject to strong conditions on human rights, transparency, 
justice reform and promoting and protecting the rights of civil 
society. These concerns are very much at the forefront of the strong 
Senate conditions in the FY08 appropriations bill, and are also 
reflected in the slightly less stringent House conditions. They should 
have been included in H.R. 6028, the authorizing legislation, which is 
where human rights conditionality appropriately belongs.
  So, Mr. Speaker, these are my concerns and my hopes regarding H.R. 
6028, and I will be following closely the consequences of authorizing 
and appropriating these funds.
  Ms. GINNY BROWN-WAITE of Florida. Mr. Speaker, I rise today in 
opposition to H.R. 6028.
  With our economy facing serious, mounting challenges, and Americans 
facing unprecedented energy prices, I cannot support sending money to 
Mexico and Central America to take up the fight on drug trafficking.
  As Mexico currently profits from the sale of oil on the world market 
as gas prices continue to skyrocket, I seriously question why we would 
send their government any aid to fight this battle. Think about it: gas 
is so much less expensive in Mexico that border area citizens from this 
country are going there to fill up.

[[Page 11996]]

  Our own borders remain porous, illegal immigration strains our 
economy, and Americans are vulnerable to terrorists slipping into our 
country: fighting Mexico's war on drugs, and essentially securing 
Mexico's southern border, should not be at the top of our list of 
priorities right now.
  While sending aid to fight criminal behavior and drug trafficking 
abroad is laudable in theory, given the current economic hardships 
Americans face, I simply cannot support this bill.
  Ms. WOOLSEY. Mr. Speaker, as Chair of the Workforce Protections 
Subcommittee, I join U.S. and international labor organizations in 
their strong concern about this bill.
  As introduced, the bill goes a long way to improve upon the 
President's request. The human rights protections have been 
strengthened, but must be further improved.
  We must ensure that before any agreement is authorized and funded, 
the most basic human and labor rights have been guaranteed.
  I have strong concerns about abuses committed by Mexican and some of 
the Central American law enforcement agencies.
  Labor activists and community leaders have been harassed, arrested, 
and physically assaulted. Many live in fear for themselves and for 
their families.
  I am concerned that these same law enforcement officials will be 
receiving military-style training, transportation, and weapons. Do we 
want to be putting military helicopters and weaponry in their hands?
  We must proceed with extreme caution on this proposal. I will have to 
oppose the legislation in its current form. I hope that we will be able 
to address the concerns of human and labor rights leaders here at home 
and in the Merida nations when the bill is in conference with the 
Senate version.
  Mrs. MALONEY of New York. Mr. Speaker, I rise today to discuss HR 
6028, ``The Merida Initiative to Combat Illicit Narcotics and Reduce 
Organized Crime Authorization Act of 2008.'' This bill would fund, 
train and equip Mexican security forces that would help prevent the 
trafficking of guns and drugs over the U.S.-Mexico border. I will vote 
for this bill, but I have some concerns about the Merida Initiative.
  By supporting the Merida Initiative, the United States demonstrates 
its commitment to prevent the illegal importation of guns and drugs by 
partnering with Mexican and Central American governments. This 
initiative benefits the larger battle against organized crime, prevents 
drugs from hitting American cities and counties, and stymies gang 
violence from spilling over the border.
  I believe that Congress must ensure our money is being used to 
prevent illegal materials from coming over the border. We have a 
responsibility to protect American citizens from drugs and violence. 
However, we also have a responsibility to make sure the money we 
appropriate for foreign governments is not directly or indirectly 
leading to human rights violations. Human rights abuses cannot and 
should not be perpetrated by personnel trained using American dollars. 
I applaud Chairman Berman and the Foreign Affairs Committee for placing 
restrictions on the uses of this money and firmly support 
investigations into reports of human right abuses in countries 
receiving Merida Initiative funding.
  Human rights violations have been reported in Mexico but are 
insufficiently investigated. A constituent of mine, Brad Will, a 
journalist for the Downtown Express, was murdered while on assignment 
in Mexico. The suspected gunmen were local officials. Tragically, his 
family is still waiting for justice. While we must protect our own 
citizens from guns and drugs, we must exercise the necessary oversight 
to ensure that this funding is used appropriately.
  Mr. KENNEDY. Mr. Speaker, I rise today in support of the Merida 
Initiative to Combat Illicit Narcotics and Reduce Organized Crime 
Authorization Act in order to demonstrate my support for a more 
proactive approach to the problems of drug addiction and trafficking, 
weapons smuggling, and gang violence. Only through a re-envisioning of 
drug policy from the ground up can our Nation make new progress in 
combating illegal narcotics trafficking.
  I am pleased to see that the Democratic leadership and Judiciary 
Committee have added revolutionary and evolutionary measures to fight 
these crimes. No longer will this Congress fight only the effects of 
the drug trade. Instead, we will work alongside our Central American 
and Mexican allies to fight its causes as well.
  I strongly feel that with the passage of the Merida Initiative to 
Combat Illicit Narcotics and Reduce Organized Crime Authorization Act, 
we can begin to work alongside our southern allies to combat all levels 
of drug addiction and trafficking, from preventing youth involvement in 
these crimes to punishing those who foster them.
  For example, with a new emphasis on evidence preservation, increased 
polygraph capabilities, and custody reform, our allies can streamline 
their policing efforts, allowing for a more focused campaign.
  However, new enforcement capabilities are not enough. The bill's 
purpose is possible only with its inclusion of after-school programs 
and programs for at-risk and criminally-involved youth. Gang 
reeducation and training for CONADIC and other agency staff in best 
practices and outreach are essential to reducing demand. These programs 
are the harbingers of our message and the most potent enforcers of our 
goals.
  We must no longer approach our war against illegal narcotics from a 
reactive standpoint, but must instead work closely with Mexican and 
Central American authorities to combat the spawning points of these 
tribulations. Through a more nuanced set of policies, our allies can 
begin to employ the same successful strategies in their states that we 
have been using here at home.
  Mr. KUCINICH. Mr. Speaker, I rise today in opposition of H.R. 6028 
and the program it would authorize, Merida Initiative. I would like to 
thank Chairman Berman for his efforts to ensure that the Merida 
Initiative received proper Congressional input, as well as his efforts 
to include human rights protections. I was disheartened once again, 
last year, when President Bush developed the Initiative without 
Congressional input or any regard for the well-documented human rights 
abuses of the Mexican military and law enforcement. However, to address 
these problems successfully, it will be necessary to address the 
problem of drug production in Mexico and South America, to address the 
problem of drug consumption here in the United States, and to stem drug 
trafficking between the United States and our neighbors to the south. 
The Merida Initiative does none of these.
  Time and again, research has demonstrated that illicit drug 
production in developing countries stems from pervasive rural poverty 
and lack of sustainable sources of income. H.R. 6028 falls woefully 
short of supporting programs that address these issues. The vast 
majority of authorized funds will go toward equipment and training for 
military and law enforcement operations; funding for prevention and 
development programs will come from a much smaller authorization that 
competes with certain law enforcement initiatives and judicial reforms.
  Similarly, research teaches us that drug use in America stems from 
poverty, lack of access to basic needs, and other psychosocial 
stressors. Again, H.R. 6028 will accomplish nothing to reduce drug 
demand in the United States. H.R. 6028 authorizes no money for demand 
reduction. In fact, H.R. 6028 only requires the President to submit a 
report on the measures taken to intensify efforts to address our 
Nation's demand-related aspects of drug trafficking.
  Moreover, interdiction efforts that address exclusively the 
trafficking aspect of the drug problem have little effect. Most often, 
the consequence of such intervention is an increase in price and 
slightly diminished amount of drugs in circulation, which does almost 
nothing to reduce demand. Enterprising drug dealers will find a way to 
get their product into the hands of users, and users struggling with 
addiction will go to extreme ends to get their fix.
  More money for guns and other tools of destruction will do nothing to 
ease the suffering of those struggling with addiction or alleviate the 
social problems that compel people to produce and/or traffic drugs. For 
those reasons, I cannot support this bill.
  Mr. BERMAN. I yield back the balance of my time.
  The SPEAKER pro tempore. The question is on the motion offered by the 
gentleman from California (Mr. Berman) that the House suspend the rules 
and pass the bill, H.R. 6028, as amended.
  The question was taken.
  The SPEAKER pro tempore. In the opinion of the Chair, two-thirds 
being in the affirmative, the ayes have it.
  Mr. POE. Mr. Speaker, on that I demand the yeas and nays.
  The yeas and nays were ordered.
  The SPEAKER pro tempore. Pursuant to clause 8 of rule XX and the 
Chair's prior announcement, further proceedings on this motion will be 
postponed.

[[Page 11997]]



                          ____________________