MAY 2020

MIGRANT DEATHS IN SOUTH TEXAS

STEPHANIE LEUTERT, SAM LEE, & VICTORIA ROSSI

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TableofContents

ExecutiveSummary 2

MigrantDeathsinSouthTexas 3

HistoryofMigrantDeathsinSouthTexas 6

Methodology 8

DataLimitations 11

MigrantDeathCauses 12

MigrantDeathLocationsandDemographicsinSouthTexas 18

MigrantDeathProcessing 23

CostsofMigrantDeaths 31

RecommendationsandBestPractices 33

Appendix 37

Endnotes 44

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ExecutiveSummaryFormorethanacentury,migrantshavediedinSouthTexaswhileattemptingtoentertheUnitedStates.ThedeathratehasebbedandflowedalongwithshiftsinU.S.immigrationandlaborpolicies,aslaborprogramscreatelegalpathwaysandmorerestrictiveborderenforcementpoliciespushtransitingmigrantsintoincreasinglyremoteareas.Yetthroughallthechanges,migrantdeathshaveneverceased.Overthelast22years,morethan3,253peoplehavelosttheirlivesattemptingtoentertheUnitedStatesinSouthTexas.Today,moremigrantsdieinSouthTexasthananywhereelseinthecountry.ThisreportbuildsonpreviousresearchrelatedtomigrantdeathsinSouthTexas.Itseekstoanswerthreequestions:1)WherearemigrantsdyinginSouthTexas?2)Whoaretheseindividuals?and3)Howdolocalagenciesdocumentandprocessthedeathsofpeoplewhocrossedtheborderwithoutauthorization?Toanswerthesequestions,theresearcherscreatedanoriginaldatasetcompiledfromrecordsreceivedthroughfieldvisitsandpublicinformationrequestsandaddedinadditionalmigrantdeathdatasetswhenpossible.Thereportalsoreliesoninterviewswithlocallawenforcement,justicesofthepeace,medicalexaminersandpathologists,forensicanthropologists,funeralhomes,consulates,andcivilsocietyorganizations,amongothers.Intotal,thereportcollected2,655casesofmigrantdeathsinSouthTexasfrom1990to2020andanadditional615casesofmigrantswhodrownedintheRioGrandebutwhosebodieswashedupontheMexicanshore.Thisdatabasedocumented12and30moremigrantdeathsthantheBorderPatrol’sofficialcountforfiscalyears2018and2019,respectively.Additionally,noneofthedrowningcaseswherethevictimendedupinMexicoareincludedintheBorderPatrol’snumbers.ThismeansthatBorderPatroldataalmostcertainlyunderstatesthetruescopeofmigrantdeathsinSouthTexas,especiallysincethehundredsofRioGrandedrowningdeathsareleftoutofthetotals.Thereportalsooutlinesdeceasedmigrants’causeofdeath,discoverylocations,anddemographics.Forthelasttwoyears,WebbCountyhasreportedthemostmigrantdeaths,butmigrantshavediedineverySouthTexascounty.Historically,thosedyingintheRioGrandeorTexasranchlandswereprimarilyMexicanmen.However,since2012,thenumberofCentralAmericansbothmigratinganddyingintheregionhasincreased,representingabouthalfofalldeathswherenationalitycouldbedetermined.Womenalsomadeupasignificantportionofthedead.In2013,womencomprisedalmostaquarterofallcaseswhereasexcouldbedetermined.County-levelofficials,whooftenworkinsomeofthepoorestareasinthestate,areresponsibleforprocessingmigrantdeathsandpayingforanyrelatedcosts.Arangeofactors,includingsheriffs’offices,justicesofthepeace,funeralhomes,medicalexaminers,forensicanthropologists,andconsulatesallplayaroleindocumentingthedeaths,requestingautopsiesandinvestigativetests,transportingthebodies,andsubmittingDNAsamples.Thisreportestimatesthatthesecostscanreachmorethan$13,100perdeceasedindividual,withcountiespayingroughly$2,000onaveragejusttoremovetheremainsfromthesceneandobtainanautopsy.Thisreportconcludeswithrecommendationsforstreamliningmigrantdeathprocessingthroughimprovedrecordkeeping,mandatedinvestigativetestingandDNAsamples,andincreasedstatefunding.

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MigrantDeathsinSouthTexasInSouthTexas,theRioGrandeformstheborderwiththeMexicanstatesofTamaulipas,NuevoLeón,andCoahuila.Theriverslicesthroughwetlandsandsanddunes,rowsofpalmtreesandscragglymesquites.Theevolvingecosystemsmakeforadynamicandserenelandscape,buttheycanalsoprovedangerousandevendeadlyformigrantswhoswimtheriverorhiketheSouthTexasbackcountryinthehopesofenteringtheUnitedStatesundetected.Overthelast22years,theU.S.BorderPatrolhascounted3,253migrantdeathsinSouthTexas,definedinthisreportasthecountiesclosesttotheborderintheRioGrandeValley,Laredo,andDelRioBorderPatrolSectors.

Map1:CountiesCoveredintheReportbyBorderPatrolSectors

Source:U.S.BorderPatrol

ThesedeathsincludeindividualswhodrownedintheRioGrandeandthosewhodiedfromheatexhaustion,dehydration,orhypothermiaonTexasranches.However,thisnumberisundoubtedlyanundercount.First,somemigrantremainsmayneverbediscovered.Second,individualswhodrownintheRioGrandeandwhosebodieswashupontheMexicanriverbank—asopposedtotheUnitedStates’shore—arenotcountedinthesenumbers.Whilethird,localofficialsincertaincountiesmaynotalwayscallBorderPatroltoalertthemofamigrant’sdeath.

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Graph1:BorderPatrol’sCountofMigrantDeathsinSouthTexasbyEnforcementSector(1998-2019)

Source:U.S.BorderPatrol

UnlikeotherareasoftheU.S.-Mexicoborder,suchasArizonaandCalifornia,migrantsinSouthTexasareoftenmovingthroughprivateland.a1Thishasseveralimportantimplicationsformigrantdeaths.First,civilsocietygroups—primarilytheSouthTexasHumanRightsCenter—mustnegotiatewithprivaterancherstowalkmigranttrails,leavewaterformigrants,orconductgridsearchesforhumanremains.Second,researchersstudyingthephenomenoncannotphysicallyaccessthelandwheremigrantsaredyingwithoutlocalgovernmentorrancherconnections.Third,mediaattentionisalsolimited,especiallysincemanyranchersprefernottopublicizethedeathsthatoccurontheirlandandmigrants'bodiesarewhiskedawaytolocalfuneralhomesortheWebbCountyMedicalExaminer’sOfficewithaslittlepublicityaspossible.ThesedifferenceshaveobscuredthescopeofmigrantdeathsinSouthTexas.MigrantdeathshavebeenbestdocumentedintheTucsonBorderPatrolSector.ThroughbookssuchasDevil’sHighway:ATrueStorybyLuisAlbertoUrreaandTheLandofOpenGravesbyJasondeLeón,thetragicstoriesofmigrantdeathsintheSonoranDeserthavebeensharedaroundtheworld.Whilehigh-profilegroupssuchasNoMoreDeaths,whichleaveswateralongmigrantroutes,havealsocontinuouslyraisedawarenessoftheissues.However,since2012,migrantdeathsinSouthTexashavesurpasseddeathsintheTucsonBorderPatrolSector.By2019,thenumberofdeathsinSouthTexaswasthreetimesmorethanintheArizonadesert.Yet,therehasbeenfarlessdocumentationoftheseindividuals’deaths.

aTexasis96percentprivateland.

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Graph2:MigrantDeathsinSouthTexasandTucsonBorderPatrolSectors(1998-2019)

Source:U.S.BorderPatrol

ThisreportexpandsonpreviousresearchrelatedtomigrantdeathsinSouthTexastoincludemigrants’demographicinformationandtrendsinmigrantdeathsovertime.Usinganoriginaldataset,itaimstoidentifydemographicinformationaboutthemigrants,wherethedeathshaveoccurred,andhighlightdeathsthattheBorderPatroldoesnotcount.Additionally,thereportalsodetailsSouthTexas’county-levelstructuresforprocessingmigrantdeaths.ItexaminestherolesandresponsibilitiesfortheBorderPatrol,locallawenforcement,justicesofthepeace,medicalexaminersandpathologists,forensicanthropologists,funeralhomes,andconsulates.

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HistoryofMigrantDeathsinSouthTexasSouthTexashasalonghistoryofmigrantdeaths,correspondingtochangesinU.S.immigrationandlaborpoliciesandborderenforcement.Overthepastcentury,changesinU.S.policyshapedthewaysthatMexicansandothermigrantsfromaroundtheworldenteredtheUnitedStatesandtransitedthroughSouthTexas.ThefirstrestrictionsonMexicanmigrationattheU.S.-Mexicoborderdatebackto1917,whentheU.S.governmentestablishedaliteracytestanda$8.00headtaxforMexicanlaborersenteringtheUnitedStates.Toavoidtheseregulations,MexicansenteringSouthTexastoworkonfarmsorrailroadsbegantowadeorswimacrosstheRioGrande,insteadofwalkingacrosstheinternationalbridges,exposingthemtotheriver’sswiftanddangerouscurrents.b2In1942,theU.S.governmentrespondedtoWorldWarIIlaborshortagesbyestablishingtheBraceroProgramandwelcomingMexicanlabortoU.S.agriculturalfields.LawmakersinitiallyexcludedTexasfromtheagreement,afterfarmownersrejectedtheprogramandlobbiedtoweakenitsprovisions.c3Yet,inthefollowingyears,hundredsofthousandsofMexicanscontinuedtocrosstheRioGrandewithoutdocumentstoworkonTexasfarms.In1952,Texasfarmownerssucceededinformalizingthisarrangement,gettinga“TexasProviso”writtenintotheImmigrationandNationalityAct(INA).ThisProvisoclaimedthat“employing”anillegalworkerwasnotthesameas“harboring”theworker.Thismeantthatfarmownerscouldknowinglyhireindividualswithoutdocumentsandavoidsanctions,butworkerswouldstillhavetosneakintothestatetoreachthefarms.Duringthisperiod,MexicanlaborerscontinuedtoenterintoSouthTexaswithoutdocumentsandattempttoevadetheBorderPatrol,oftenwithdeadlyconsequences.AJuly1949NewYorkTimesarticlenotedthatapproximatelyoneMexicandrownedintheRioGrandeeveryday.4Additionally,duringthelate1940sandearly1950s,theBorderPatrolsetuphighwaycheckpointslocated10to75milesintotheUnitedStates.5ThesecheckpointspushedMexicanlaborersofftheroadsandontoremotepaths,wheretheyfacedexposuretothearidlandscapeandextremetemperatures.Bythelate1950s,TexasbeganacceptingBraceroworkersinashiftthatlastedroughlyadecade.ThismeantthatsomelaborerscouldobtainlegalpaperstoentertheUnitedStatesandpassthroughofficialportsofentry.However,otherindividualscontinuedtoenterTexaswithoutdocumentsiftheycouldnotjointheBraceroProgramoriftheydidnotwanttoaccepttheprogram’slowwages.6TheBraceroProgramendedin1964,buthundredsofthousandsofMexicanscontinuedtocometotheUnitedStatesforseasonalagriculturalandranchingjobs.Onceagain,therewerenolegalpathwaystoworkintheUnitedStates,leadinglaborerstocrosstheriverandhikethroughranchlandstoreachtheirdestinations.7Inthelate1980sand1990s,U.S.policiesshiftedtheimmigrationlandscape.In1986,theImmigrationReformandControlAct(IRCA)legalized3millionimmigrantswhohadarrivedinthecountrypriortoJanuary1,1982.8ItalsoremovedtheTexasProvisoandincreasedBorderPatrolfunding.WhilesomeindividualsreceivedlegaldocumentsunderIRCA,otherswerenoteligibletoregularizetheirstatusandcontinuedtravelingbackandforthacrosstheborder.In1996,theU.S.CongresspassedtheIllegalImmigrationReformandImmigrantResponsibilityAct(IIRIRA),whichtookamorepunitiveapproachtounauthorizedimmigration.9Itincreasedthetypesofcrimesthatmadeanindividualeligiblefordeportation,added5,000BorderPatrolagentsoverthefollowingfiveyears,requiredadditionalborderfencing,andincreasedthecriminalpenaltiesforirregularentryandsmuggling.

bByoneaccount,75percentofMexicansbegantocomeillegallyaftertheheadtaximposition.cMexicanofficialsalsobalkedathavingtheirworkerssenttoTexas,giventhenotoriouslybadconditions.

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ThetougherapproachwenthandinhandwithanewseriesofBorderPatrolstrategies.InSeptember1993,theBorderPatrolbegan“OperationBlockade”inElPaso,withagentsstationedinlargenumbersontheRioGrande’sbanktocreateahumanwall.TheeffortsstoppedpeoplefromcrossingthroughElPaso’sdowntown,andtheBorderPatrolhailedtheoperationasasuccess.Asaresult,theBorderPatrolformalizedthisenforcementmethodinits1994SouthwestBorderStrategyandexpandeditacrosstheborder.10In1997,theBorderPatroladoptedthisapproachinSouthTexasin“OperationRioGrandeValley.”Alongtheborder,strategicallyplacedborderfencingincitydowntownsalsoreinforcedtheseoperations.YetwhiletheBorderPatrol’soperationsandfencingreducedthenumberofpeoplecrossingthroughU.S.bordercities,itledtoanewphenomenon:migrantsbegantocrossalongcityoutskirtsorinmoreremoteareas.Asthisenforcementshiftfunneledmigrantsintomoredesolateandruggedmigrationpaths,migrantdeathnumbersbegantotickupwards.In1999,researchersattheUniversityofHouston,theUniversidaddeMonterrey,andtheUniversityofCalifornia,LosAngelescountedmorethan1,600possiblemigrantfatalitiesalongtheborderbetween1993and1997.d11Theseresearchersnoticedanincreaseinthenumberofdeathsfromhyperthermia,hypothermia,anddehydrationasmigrantsbeganhikingthroughmoreremoteareas.Aroundthistime,MexicancrossersalsobegantostayintheUnitedStatesforlongerperiodsoftimeinordertoavoidre-crossingtheincreasinglydangerousandwell-monitoredborder.Inthelate1990s,theBorderPatrolstartedtocountthedeaths.In1998,theBorderPatrolbegantheBorderSafetyInitiative(BSI)tocollectinformationonmigrantdeaths,advertisethedangersassociatedwithcrossingtheborder,anderectrescuebeaconsintheTucsonSector.Soonafter,in2000,theBorderPatrolcreatedtheBorderSafetyInitiativeTrackingSystem(BSITS)asthemainrepositoryfordatacollectedonbordercrossingdeathsandrescues.e12Yeta2006GovernmentAccountabilityOffice(GAO)reportfoundinconsistenciesintheBorderPatrol’ssystemfortrackingandrecordingmigrantdeaths.13TheBorderPatrolhasalsotakenadditionalstepstoaddressmigrantdeaths.In1998,theBorderPatrolcreateditsSearch,Trauma,andRescueteam(BORSTAR)toassistinsearchandrescueoperations.Whilein2015,theBorderPatrolbeganitsMissingMigrantProgram,whichisanoutgrowthoftheBorderSafetyInitiative.Itprovidesthreetypesofassistance:1)BorderPatroldatabasesearchesformissingmigrants;2)searchandrescue;and3)remainsrecovery.TheMissingMigrantProgramalsoplacessignsinSpanishthroughoutSouthTexas’ranchlandandbeaconswithhigh-intensitybluelights.Yet,evenwiththeseefforts,hundredsofmigrantscontinuetodieinSouthTexaseachyearandofficialnumberscontinuetounderstatethefullscopeofmigrantdeaths.f14

dDuringthe1990s,anestimated50to75migrantsdiedinSouthTexaseachyear,accordingtoa2006GovernmentAccountabilityOffice(GAO)report.eTheBorderPatroldefinedamigrantdeathas:“Aborder-relateddeathisdefinedasasuspected,undocumentedmigrant:1)whileinfurtheranceofanillegalentry;2)withinadesignatedtargetzonewhetherornottheBorderPatrolwasdirectlyinvolved;and/or3)outsidethedesignatedtargetzonewhentheBorderPatrolhasdirectinvolvementwiththeincident.”fIn2018,CNNjournalistBobOrteganotedaBorderPatrolundercountofmorethan560migrantdeathsovertheprevious16years.

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MethodologyThispaperusesamixedmethodologytoanswerthreebroadquestionsrelatedtomigrantdeathsinSouthTexas.Thefirstquestionlooksatcounty-leveladministrativeprocesses,asking:HowdolocalagenciesprocessanddocumentthedeathsofindividualswhoattemptedtoentertheUnitedStateswithoutauthorization?Theothertwoquestionsfocusonthedeathsthemselves,asking:WherearemigrantsdyinginSouthTexasandwhoaretheseindividuals?Theanswerstothesethreequestionsareintertwined,asunderstandingcounty-levelprocessesprovidesinsightsregardingthedataavailableforidentifyingdeathlocationsandthedeceased’sdemographicinformation.Toanswerthefirstquestion—regardinghowlocalagenciesprocessanddocumentmigrantdeaths—thereport’sresearchersreliedonTexasstatute,existingliterature,andsemi-structuredinterviews.Inparticular,theresearchersconductedinterviewswithsheriffs’officesin15counties,andinterviewswithjusticesofthepeace,citypolicedepartments,firedepartments,funeralhomes,medicalexaminers,andforensicanthropologists,amongothers.Theseinterviewsclarifiedeachcounty’sspecificprocessesforaddressingmigrantdeathswithintheirjurisdiction.Theyalsohelpedtoidentifyeachagency’sformofmigrantdeathdocumentation.Toanswerthisreport’ssecondandthirdquestionsondeathlocationsanddemographics,theresearcherscreatedanoriginaldataset.Theprimarydatasourcesweresheriffs’officeincidentreportsandjusticeofthepeaceinquestforms,whichwereobtainedthroughrecordsrequestsandsitevisits.gTheresearchersfiledpublicandjudicialrecordsrequestswithauthoritiesin19SouthTexascounties.hInresponsetotheserequests,officialsfromsevencountiesreturneddataofvaryingdetail.iTosupplementthisdata,researcherstraveledtonineSouthTexascountiestomeetwithlocalofficialsandreviewavailablefiles.jResearchersinputinformationfromthefilesintoaspreadsheetcontaining58variables,whichdocumentedthegeographiclocationofthehumanremains,thediscoveringparty,belongings,anddemographicinformation.Throughthesedatacollectionmethods,thereport’sresearchersdocumented1,696casesofmigrantdeathsinSouthTexasfrom1990to2020.SeeAppendixBfortherecords’sourcesandAppendixCforthenumbersofrecordsobtainedbycounty.Eventually,thisdatasetwaspareddownintoaspreadsheetwith21variablesandsupplementedwithotherdatasources.TheseadditionalsourcesincludedTexasVitalStatisticsdataforunidentifiedbodies(January1990toMarch2019),TexasTransnationalIntelligenceCenterdata(January2017toSeptember2019)fordeathslinkedtotransnationalcriminalgroups,Mexico’sMinistryofForeignRelationsdata(2000to2008and2004to2019)onMexicancitizenswhodiedwhileattemptingtoentertheUnitedStates,andtheInternationalOrganizationforMigration’s

gResearcherssoughtautopsyrecordsfrommedicalexaminers’officesandincidentreportnarrativesfromsheriffs’offices,bothofwhicharepublicrecordundertheTexasPublicInformationAct.Researchersalsosoughtjusticeofthepeaceinquestrecords,whichareopentothepublicpertheTexasRulesofJudicialAdministration.hResearchersrequestedrecordsfromauthoritiesinCameron,Dimmit,Duval,Edwards,Hidalgo,JimHogg,Kenedy,Kinney,Kleberg,LaSalle,Maverick,Starr,Uvalde,ValVerde,Webb,Willacy,Zapata,andZavalacounties.ResearchersdidnotsubmitapublicrecordsrequesttoBrooksCountybecausethesheriffhadalreadyprovidedresearcherswiththecountydata.iSheriffs’officesfromHidalgo,Kleberg,Starr,Webb,Cameron,LaSalle,andZapatacountiesprovidedrecordsthroughmailoremail.Formoreinformation,seeAppendixC.jResearchersreviewedfilesin-personinBrooks,Duval,Edwards,JimHogg,Kenedy,Kinney,Maverick,ValVerde,andUvaldecounties.TheonsetofCOVID-19inearlyMarch2020meantthattheresearcherscouldnotcompletetheirsitevisitstoofficialsinCameronCounty,DimmitCounty,MaverickCounty,andWebbCounty.

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(IOM)MissingMigrantsProjectdata(2014to2020).kTheresearchersaddedthissupplementaldatatothecounty-leveldatasetonlyifitwasclearthatitdidnotduplicateanyexistingrecords.lWiththeseadditionalsources,thetotaldatasetincreasedto2,655migrantdeathscasesinSouthTexasfrom1990to2020.Whilethedatacollectedspanned30years,thefollowingsectionsofthisreportwillonlyexaminemigrantdeathsfrom2012to2019,givensporadicdataavailabilitybeforethistimeperiod.Fortheseeightyears,thedatasetincludes1,519migrantdeathsinSouthTexas.Thedatasetcontainsmorethan100casesforeachyearfrom16counties.mWhilethequalityofthedatavariedbysource,itwaspossibletodeterminethedecedent’scountyofdeathineverycase,thedecedent’ssexin59percentofthecases,theindividual’snationalityin40percentofthecases,andtheexactagein23percentofthecases.

Graph3:MigrantDeathsbyYearintheDataset(2012-2019)

Source:ReportDataset

However,thedatasetisincomplete.ItismissinginformationfromZavalaandWillacycountiesandhasincompleteinformationfromHidalgo,Starr,ValVerde,andLaSallecounties.Therearealsoadditionalreasonstosuspectthedataisincomplete,whicharedetailedinthefollowingsection.Yet,eventhisincompletedatasetcomprises93percentofthedeathsreportedbytheBorderPatrol

kTheTexasVitalStatisticsUnitdeclinedtoprovidemoredatafortheprojectbecausedeathcertificatesdonotcontaininformationaboutdecedent’slegalstatusintheUnitedStates.TheBorderPatrolprovidedonlyaggregatemigrantdeathcountsbysectorinresponsetoaFreedomofInformationActrequest.InitsJanuary2020response,theagencystateditdoesnotcollect“muchof”thedemographicinformationrequestedbyresearchers,includingnationality,becausemigrantsmaycarryfalseidentification.BorderPatrolalsostatedthatitdoesnotrecordtheGPSoraddresslocationofmigrantdeaths.lForrecordsthatlackedaspecificdate,theresearchersdidnotincludethesupplementaldataiftheyear,month,andcauseofdeathwerethesame.Thismethodologymayhaveresultedinanundercount.mEdwardsandWillacyCountydidnotreportanymigrantdeathsfortheseyears,norweretheyrecordedinanyotherdataset.ZavalaCountydidnotrespondtotherecordsrequest,butnomigrantdeathswererecordedinthecountyviaothersources.

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initsDelRio,Laredo,andRioGrandeValleysectorsfortheseyears.nItalsorecords12and30moremigrantdeathsthantheBorderPatrolforfiscalyears2018and2019,respectively.

Graph4:ReportDatasetComparedtoBorderPatrolData(FiscalYears2012-2019)

WebbCountydatawasonlyreportedbycalendaryearandisincludedinitscorrespondingyear.

Source:ReportDatasetandBorderPatrolData

WhilethisreportfocusedonSouthTexas,theresearchersalsocreatedadatasetonmigrantdrowningdeathswhenbodieswashedupontheMexicansideoftheRioGrande.ThisdatasetincludedrecordsrequestsreceivedfromTamaulipas’PublicMinistry(ProcuraduríaGeneraldeTamaulipas);Coahuila’sPublicMinistry(FiscalíaGeneraldelEstadodeCoahuila);themunicipalgovernmentofReynosa,Tamaulipas;CivilProtection(ProtecciónCivil)inMatamoros,Tamaulipas;CivilProtectioninJiménez,Coahuila;andMexico’sMinistryofForeignRelations.Whennotduplicative,thedatasetwassupplementedwithcasesfromIOM’sMissingMigrantProject.Intotal,theresearcherscollected615casesofdrowningdeathsinMexico,with378casesfrom2012to2019.TheBorderPatroldoesnotcountthesedeathsinitsofficialnumbers.

nTheBorderPatrolreported1,647deathsduringtheseyears.

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DataLimitationsThemostfundamentalchallengeforthisreport’sdatasetwasdeterminingwhofitintothetargetpopulation:unauthorizedmigrantsintransitthroughSouthTexas.Whilesomedeathsappearedtobeaclearfit,othersdidnot.Toensurethatnon-migrantswerenotincludedinthecount,theresearchersdesignedafour-prongedapproachtoansweringthisquestion:1)adecedenthadtobefoundalongknownmigrationroutes;2)theplaceofbirthandresidencywasnotintheUnitedStates;3)thedecedenthadtolackaU.S.socialsecuritynumberontheirdeathcertificate;and4)thedecedent’scauseofdeathhadtobeconsistentwithtransitmigrationanduncommonforindividualsnotintransit(suchasdehydration,heatstroke,orhypothermia).Forunidentifiedremains,theresearchersreliedmoreheavilyonmeetingthefirstandfourthcriteria.Indrawingthesedistinctions,itispossiblethatthisreport’sdatasetisanundercountofmigrantdeathsinSouthTexas.Forexample,thisreportdidnotincludeindividualsretrievedfromtheRioGrandewhosebodiesshowedsignsoffoulplay(e.g.gunshotwounds),giventhatorganizedcriminalgroupsmaythrowtheirvictims’bodiesintotheriver.However,itispossiblethatsomeoftheseindividualsmayhaveinfactbeeninthetargetpopulation,sincecriminalgroupsinMexicoalsovictimizemigrants.Additionally,thereportdoesnotincludeindividualswhodiedinhospitals,unlessthecasehadapolicereportstatingthatthedecedentwasamigrantintransitthroughSouthTexas.Thiswasbecauseitwasoftenimpossibletodetermineifthedeceasedwasintransitorsomeoneinthecommunitywithoutlegalstatus.Asecondfundamentalchallengewasobtainingthedeathrecordsfromcountyauthorities.Manysheriffs’officesandjusticesofthepeacefulfilledrecordsrequestsorpreparedrecordsforvisits.However,otherswereunwillingtofilltherequests.Theircitedreasonsgenerallystemmedfromtheamountofworkthatitwouldtaketopullsuspectedmigrantdeathrecordsfromthefiles.Somesheriffs’officerecordclerksalsostatedthattheircomputersoftwaresystemswouldnotallowthemtosearchfordigitalrecordswithouttheexactdateofanincidentorthenameofadecedent.oFinally,othersheriffs’officesandjusticesofthepeacealsoreportedthattheirfileswereinaccessibleinoff-sitestoragefacilities.However,evenwhentheresearcherswereabletoobtaintherecords,theirquantityandqualityvariedwidely.Eachcountyprovideddataforadifferentsetofyears,andsomecountieshadlargegapsintheirrecords.Somerecordsincludedcomprehensiveinformationwithdetailedreports,autopsyrecords,GPScoordinates,andphotosofthescene.Othersincludedonlythedateandcauseofdeath.Thisdisparityinavailabledatalimitedtheresearchers’abilitytodetermineexactlywhereindividualsweredyinginSouthTexas,theirdemographicinformation,andtrendsovertime.Duetothesechallenges,thereport'sdataisincompleteandunstandardizedacrosstimeandspace.Thefollowingsections’findingsshouldbeinterpretedinlightoftheselimitations.

oSomesheriffs’officesreportedhavinglostaccesstoearlierdigitalrecordsaftertransitioningtonewdatamanagementsystems,whichwereoftennecessaryadditionsinlightofnewstatecrimereportingrequirements.Privatecompaniesdigitallystoredtheseearlierfilesandwouldchargesheriffs’officestoaccesstheserecords—acosttheycouldnotafford.

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MigrantDeathCausesMigrantsattemptingtoentertheUnitedStatesfacevariousrisksatdifferentpartsofthejourney.TheserisksincludeswimmingacrosstheRioGrande,exposuretoSouthTexastemperatures,suffocationrisksinsidevehicletrunksorcrowdedtrailers,andcarcrashesassmugglersattempttoevadetheBorderPatrolorlocallawenforcement.EachcountyhasauniqueriskprofileformigrantsenteringtheUnitedStates,dependingonthegeographicterrain,distancefromtheborder,andnearbyBorderPatrolcheckpoints.Similarly,eachunauthorizedmigrationmethodalsohasitsownriskprofile,includingforpeoplewalkingingroupsthroughthebrush,packingintovehicles,orattemptingtocrossintotheUnitedStates’interiorwithoutasmuggler.Drowning(UnitedStates).ToenterSouthTexasbetweenportsofentry,migrantsmustcrosstheRioGrande.TheRioGrande’sheadwatersbeginintheColoradoRockyMountains,buttheriverflowssouthfromthere,crossingNewMexicotoreachElPasoandthenformingtheU.S.-MexicobordertotheGulfofMexico.InitswindingpaththroughSouthTexas,theRioGrandepasseseightSouthTexascounties—ValVerde,Kinney,Maverick,Webb,Zapata,Starr,Hidalgo,andCameron—andborderstheMexicanstatesofCoahuila,NuevoLéon,andTamaulipas.Atsomepointstheriverisshallowenoughtoeasilywadeorwalkacross.Inotherareas,theriverrushesby,withundercurrentsmovingbelowthesurfaceatmorethan25milesanhour.Thelatterscenarioisfrequentlythecaseduringrainyseasonsorafterwaterisreleasedfromanearbydam.

Map2:SouthTexasBorderCountiesAlongtheRioGrande

Source:AuthorElaboration

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Mexican-basedcriminalgroupssmuggledrugs,people,andothercontrabandintotheUnitedStatesacrosstheRioGrande.Thesegroupscontrolswathsoftheborder,especiallyintheareasfromMatamorostoPiedrasNegras.Inthesezones,migrantsmustobtainpermissiontocrosstheriverandpayarequiredfee.Thesmugglersgenerallymanagethispaymentlogisticsformigrantstheyareguiding,butmigrantstravelingwithoutguidesalsoneedtopay.Tocrosstheriver,peoplemaywadeorswimacrossorfloatoveroninnertubesorrafts.Aftercrossingtheriver,asylum-seekingmigrantswillseekouttheBorderPatroltorequesthumanitarianprotection.WhileindividualslookingtoevadetheBorderPatrolwillheadtonearbysafehousesbeforecontinuingtheirjourneys.CrossingtheRioGranderiverisdangerous,andthousandsofmen,women,andchildrenhavediedinitsdeceptivecurrents.Thisreport’sdatasetlists246drowningcasesfrom2012to2019,whichisanundercountsinceWebbandStarrcountydatadidnotlistmigrants’causeofdeathandCameroncountydatawasincomplete.Yet,fromtheavailabledata,138individualsdrownedinHidalgoCountyand72inMaverickCounty.TherewerelowernumbersofdrowningdeathsinCameronCounty,ZapataCounty,ValVerdeCounty,andKinneyCounty.Additionally,oneHonduranmandrownedwhilecrossingacreekinKlebergCountyafterheavyrainsraisedthewaterlevel.Drowning(Mexico).WhilethisreportfocusedondeathsinSouthTexas,severalofthedatasourcesdocumentedRioGrandedrowningdeathswherethebodieswashedupontheMexicanshore.pUsingthesedatasourcesandadditionalrecordsrequests,theresearchersdocumented378casesfrom2012to2019,whereanindividualdrownedintheriverbutdriftedintoMexicanterritory.ThesedeathsoccurredalongthelengthoftheTexas-Mexicoborder,withthelargestnumbersofbodiesrecoveredinReynosa(102),NuevoLaredo(96),Matamoros(55),andPiedrasNegras(38).

pThesedeathswereincludedintheIOMMissingMigrantdataandMexico’sMinistryForeignRelationsdata.

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Map3:MigrantDrowningDeathsbyMexicanBorderCity(2012-2019)

Source:ReportDataset

NoneofthesecasesareincludedinBorderPatrolorU.S.county-leveldatasets.Instead,MexicanauthoritiesprocessthebodiesandMexicanstatepublicministrieskeepthetalliesoftheseindividuals.Thesedrowningdeathsincludesomeofthemosthigh-profilemigrantdeathcasesinrecentyears.InJune2019,forexample,thephotooftheSalvadoranfatheranddaughterandtheirintertwined,semi-submergedbodiesdrewoutrageandmourningaroundtheworld.Yet,sincetheirbodieswashedupontheMatamorosshoreoftheRioGrandeinsteadofacrosstheriverinBrownsville,Texas,thesetwoindividualsarenotincludedinanyU.S.datasetonmigrantdeaths.ExposuretotheElements.OncemigrantsenterU.S.territory,theyfaceadditionalrisks.ThisisespeciallythecaseformigrantslookingtocontinuebeyondtheBorderPatrol’s100-milejurisdiction,sincetheywillthenhavetopassBorderPatrolcheckpoints.Sincethe1950s,theBorderPatrolhassetupcheckpointsonnorth-boundhighwaysinTexas.BorderPatrolagentsstationedatthesecheckpointsaskpassengersiftheyareU.S.citizensandapprehendindividualswhoareattemptingtoentertheUnitedStates’interiorwithouttheappropriatemigratorydocuments.qCurrentlythereare13permanentBorderPatrolcheckpointsinSouthTexasinValVerde,Uvalde,Maverick,Dimmit,Webb,JimHogg,Brooks,Kenedy,andCameroncounties.

qFromOctober2018throughAugust2019,BorderPatrolagentsatcheckpointsinSouthTexasdetained5,801people.Thisnumbermayincludeindividualstravelingthroughthecheckpointswhoarenotmigrants

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Map4:BorderPatrolCheckpointsinSouthTexas

Source:AuthorElaboration

MigrantsmustpassthesecheckpointsundetectedtoreachtheU.S.interior.Somemigrantsattempttopassthroughthecheckpointsincartrunksortrailers,orcircumventthecheckpointsinthesurroundingranchland.Inthislatterstrategy,acardropsoffaguideandagroupofmigrantsatapredeterminedpointbeforethehighwaycheckpoint.ThegroupthenhikesnorththroughtheTexasranchland,sometimesfollowingpipelinesorelectricitylinestoguidetheirway.Themigrantsbringbackpacksfulloffoodandcarrygallonsofwater.Oncethegroupreachesapredeterminedpointnorthofthecheckpoint—generallyafterseveraldays—carspulloverandpickthemup.ThegroupthendrivesnorthonmajorhighwaystoSanAntonioorHouston.Duringthisjourneymigrantsmaybeexposedtoextremetemperatures,causingbothhyperthermiaandhypothermia,ortheymayrunoutofwater.SomeindividualssetoutintotheTexassummerheatwithonlyagallonofwater,whichisbarelyenoughforoneday,letalonefortheentiretrip.Thismeansthattheymuststopandfilltheirjugswithwaterthattheyfindalongtheway.Iftheycannotobtainenoughwaterfromlivestockwatertanksorothersources,somemigrantscanbecomedehydratedanddie.Thereisalsothepotentialforexhaustion,injury,andcontactwithwildanimalssuchasrattlesnakes.Migrantswhobecomelostorseparatedfromtheirgrouprunanevenhigherriskofdeathorinjury.

intransit,includingundocumentedimmigrantslivingintheregionorpeoplewithexpiredimmigrationdocuments.

16

Variousfactorsmayworsenamigrant’sabilitytosurvivethisjourney.Onefactorisclothing.Manyindividualsprefertousedark-coloredshirts,sweaters,andjeanssincetheybelieveitallowsthemtobetteravoidBorderPatroldetection.However,thedarkcolorsalsoabsorbtheSouthTexassunandmaycontributetooverheating.Additionally,manymigrantswearclothingthatisillsuitedforlongwalksinroughterrain,includingstretchy,non-breathablepants,dressshoes,andflimsyboots.Asecondfactorthatcanworsenamigrant'sabilitytosurviveistheterrainitself.InBrooksCounty—whichhasreportedthemostmigrantdeathsinSouthTexasfrom2012to2019—thelandissandyandtheremayevenbesanddunesinthebrush.Thistypeofterrainismorechallengingforindividualswhoarewalkingfordaysandmayquicklyleadtoexhaustion.Bycomparison,othercountieshaveflatter,harderlandthatismoreconducivetolongtreks.VehicleDangers.Migrantsalsofacearangeofdangersassociatedwithbeingsmuggledinvehiclesorendingupintheirpath.First,individualswhoaresmuggledintheU.S.interiorwithintrailers,cartrunks,orothersmallspaces,facetheriskofsuffocationorintenseheatexposure,especiallyifthereisinsufficientventilationoriftheyareleftforlongperiodsoftime.InDecember2017,a24-year-oldmanfromMexicoattemptedtoentertheUnitedStates’interiorinatrailer.BeforearrivingattheFalfurriasBorderPatrolcheckpoint,heslippedintoasmallenclosedspaceunderthedriver’ssleepingcompartment.Whenthedriverandanotherpassengerwerepulledoutofthetruckforquestioning,themanremainedinthespace,ultimatelysuffocatingtodeath.Inthiscase,theBrooksCountySheriff’sOfficewastheactorresponsibleforremovingtheman’sbodyfromthecompartment.However,ifanindividualdiesinacartrunkwhilebeingsmugglednorth,thedrivermayleavethebodyalongsidetheroad.Vehicleaccidentsposeanadditionaldanger.WhenlawenforcementorBorderPatrolagentssuspectthatavehicleisengagedinsomeformofdrugorhumansmuggling,theywillfirstattempttopullthecarover.Ifthecardoesnotpulltothesideoftheroad,thesituationcanescalateintoahigh-speedchase,attimesthroughbackcountryranchland.Fleeingvehicleshavecrashedthroughfences,rolledintoditches,orflippedover,severelyhurtingorkillingthemigrantsinside.InDuvalCounty—northoftheFalfurriasBorderPatrolcheckpoint—membersofthelocalsheriff’sofficehaveengagedinseveralrecenthigh-speedchasesthatendedinmigrantfatalities.Migrantsmayalsobehitbyvehicles.ThisisespeciallytrueforindividualswhohikethroughranchlandtoavoidBorderPatrolcheckpointsandcrosshighwaysorroads.Thesemigrantsmaybewearingdarkclothes,travelingatnight,andrunningacrosshighwayswherecarsandtrucksaretravelingathighspeeds.InApril2016,a25-yearoldGuatemalanwomanattemptedtorunacrossHighway77inKenedyCountyandwasstruckbyatruck.Thedriverreportedthathesawthewomanatthelastminuteandtriedtoslowdown,butitwastoolate.TherearealsocasesofmigrantsbeinghitbyvehiclesinKlebergandDuvalcounties.AdditionalRisks.WithinmultipleSouthTexascounties,migrantswerealsokilledintrainaccidents.Inthesecases,theindividualsappearedtobefollowingthetraintracksasawayofguidingthemselvesnorthorattemptingtostowawaybetweenwagoncars.Itisalsopossiblethatinsomecasesmigrantsweresleepingonthetraintrackswhenthetrainapproached,inamisguidedbeliefthatitprotectsthemfromrattlesnakes.15Evenifthetrainconductorshadseentheindividualsonthetracks,itisunlikelythattheycouldhavestopped,giventhetimeneededtoslowaspeedingtrain.SeveralwomenalsoappearedtohavebeenmurderedastheytransitedthroughSouthTexas.Forexample,inDecember2013,huntersfounda31-year-oldwomanfromGuatemalainahuntingblindinBrooksCounty.Thewoman’sclothingwasindisarrayasifshehadbeensexuallyassaultedandtherewasabloodywoundonthebackofherheadwhereitappearedthatshehadbeenhitwithabluntobject.Anecdotesfromlocalofficialssuggestthatfemalemigrantsmaycommonlyface

17

harassmentorevenassaultandsexualviolenceduringtheirjourneythroughSouthTexas.However,thedatarevealedonlyafewinstanceswherethewomenappearedtohavebeenmurdered.

18

MigrantDeathLocationsandDemographicsinSouthTexasFrom2012to2019,migrantsdiedinalmosteverySouthTexascounty.Duringthistimeperiod,roughlyhalfofthedeathsoccurredincountiesdirectlyalongtheU.S.-Mexicoborder;theotherhalftookplaceininteriorcounties.However,thereisatrendtowardtheborderbecomingtheriskierarea.From2012to2016,therewereanequalnumberofdeathsinborderandinteriorcounties.Butoverthepastfouryears,thenumberofdeathsalongtheTexas-Mexicobordersteadilyroseasapercentoftotalnumbers.In2019,61percentofmigrantdeathsinSouthTexasoccurredinabordercounty.

Map5:TotalMigrantDeathsbySouthTexasCounty(2012-2019)

Source:ReportDataset

Duringthetimeperiodcoveredinthisreport,BrooksCountyreportedthemostdeaths.BrooksCountyhasaBorderPatrolcheckpointabout70milesnorthfromtheborderonHighway281andhasbecomethemostnotoriouscountyformigrantdeathsinSouthTexas.Inmediastoriesovertheyears,Brookshasbeencalledthe“DeathValleyformigrants”and“thekillingfields.”16However,

19

Map5showsoveralldeathtotalsfor2012to2019,andBrooksCountyisnolongerthecountywiththemostmigrantdeathsintheregion.In2018,WebbCountysurpassedBrooksCounty,andisnowthemostdangerousplaceinSouthTexasformigrantsenteringtheUnitedStates.

Graph5:MigrantDeathsinBrooksCountyandWebbCounty(2012-2019)

Source:ReportDataset

InWebbCounty,therisingnumberofmigrantdeathsappearstocorrespondtoshiftingmigrationroutesforsingleadults.InotherSouthTexasbordercounties,suchasneighboringMaverickCountytherewereanincreasingnumberofmigrantdeathsasfamiliesattemptedtocrosstheRioGrandetoseekasylum.However,theBorderPatrol’sLaredoSector—whichincludesWebbCounty—hascontinuouslyrecordedlownumbersoffamilyapprehensions.ThismeansthatitismorelikelythatsingleadultsdiedinWebbCountywhileattemptingtoevadetheBorderPatrol.Nationality.Inthe1990sandmid2000s,Mexicancitizensmadeupthevastmajorityofbordercrossersandsubsequentlythemajorityofmigrantdeaths.TheseMexicancitizenswerepartofacentury-oldmigrationpattern,wherebyMexicannationalswouldentertheUnitedStatesforseasonalagriculturalandranchingworkandthentravelbacktotheirhomesinMexico.From2004to2012,theMexicangovernment’sdataonitscitizens’deathsalongtheU.S.-MexicobordermirrorstheU.S.BorderPatrol’soverallmigrantdeathdata.

20

Graph6:SRE’sMexicanDeathsComparedtoTotalCBPDeaths(2004-2019)

Source:Mexico’sMinistryofForeignRelationsandU.S.CustomsandBorderProtection

Fromthelate2000sonward,however,anincreasingnumberofCentralAmericansandindividualsfromothercountriesbegancrossingtheRioGrandeandtraversingSouthTexas’backtrails.In2012,thenumberofnon-Mexicanapprehensionsbegantorise,andthisnumberwasalsoreflectedinmigrantdeathdata.From2012to2019,non-MexicansgenerallymadeupmorethanhalfofmigrantdeathsinSouthTexas.Intotal,306Salvadorans,Guatemalans,andHonduransdiedintheregionduringthistimeperiod,comparedto273Mexicans.rThedatasetalsoreporteddeathsofpeoplefromEcuador,Nicaragua,Colombia,theDominicanRepublic,Brazil,Belize,CostaRica,andPeru.

Graph7:MigrantDeathsinSouthTexasbyNationality(2012-2019)

Source:ReportDataset

rThisinformationondeceasedmigrants’nationalitiescomesprimarilyfromtwosources.Thefirstsourcearetheidentificationcardsthatindividualshadintheirpossessionwhentheypassedaway.ThesecondsourcearedeathcertificatesaddedtofilesafteranindividualwasidentifiedthroughDNAtestingorothermeans.Thisreporttriednottouseidentificationcardsasthesoleidentifier,sincesomeindividualsmayusefalseMexicanidentificationcardsinordertomovesafelythroughMexico.

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Thedeceasedmigrantscamefromvariouscitiesandtownswithintheircountries.TheMexicanswhodiedwhileattemptingtoentertheUnitedStatescamefrom24differentstates.ThemostindividualshailedfromMichoacán(16cases),followedbyMexicoState(12cases),andthentheborderstatesofTamaulipasandCoahuila(8caseseach).InGuatemalaandHonduras,themigrantsalsocamefromawiderangeofdepartmentsaroundthecountry.OnlyinElSalvadordidthelargestnumbersofpeoplecomefromjustafewbigcities:SanSalvador(16cases)andSanMiguel(8cases).Sex.WhilethestereotypesofmigrantscrossingtheRioGrandeorhikingthroughTexasranchlandgenerallyfocusonmen,womenalsomakeupasignificantportionofbordercrossersandbordercrossingdeaths.Withinthedataset,morethanhalfofmigrantdeathscases(59percent)identifiedtheindividual’ssex.sFrom2012to2014,thepercentofwomenamongthedeadhititspeak,consistentlymakinguparound20percentofthetotal.However,after2014,thesenumbersdecreasedtobetween9and17percent.In2019,femalesmadeup16percentofmigrantdeathsalongtheborder.

Graph8:MigrantDeathsinSouthTexasbySex(2012-2019)

Source:ReportDataset

Migrantnationalitytrendsvariedbysex.From2012to2019,45percentofidentifiedmenwereMexican,19percentwereSalvadoran,18.5percentwereGuatemalan,and12percentwereHonduran.Amongwomen,thesetrendsdifferedslightly.Mexicanwomenalsomadeupthehighestamountoffemalemigrantdeathswith37percentofthetotal.Yet,Salvadoranwomenaccountedfor30percentofidentifiedindividuals.Guatemalanwomenmadeup17percentofthedeathsandHonduranwomenmadeup10percent.Age.From2012to2019,theaverageageofdeceasedindividualsinSouthTexasconsistentlyhoveredaround30yearsold.Therewaslittledifferenceintheaverageagesofdeceasedmenandwomen,oramongnationalities.

sSometimestheindividual’ssexwasnotabletobeascertained,especiallywhentheonlyrecoveredremainswereunidentifiablebones.

22

Graph9:AverageAgeofDeceasedMigrantsinSouthTexas(2012-2019)

Source:ReportDataset

However,therewasawiderangeinages,particularlyforindividualswhodrownedwhileattemptingtocrosstheRioGrande.From2012to2019,thedatasetincluded17casesofminorswhodrowned.Thisincludedaten-month-oldbabywhowasseparatedfromhisfamilynearPiedrasNegrasastheycrossedtheRioGrande.Additionally,inSeptember2019,aHonduranmotherandher21-month-oldsondrownedwhileattemptingtocrosstheRioGrandeinValVerdeCounty.ThefamilyhadsoughtasylumintheUnitedStatesandbeenreturnedtoMexicoaspartoftheMigrantProtectionProtocols(MPP).Afterareportofapossibledrowning,theBorderPatrolfoundthemotherandson’sbodiesfloatingintheriver.

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MigrantDeathProcessingInSouthTexas,arangeofactorsprocessmigrantdeaths,includingfederal,state,county,andnon-governmentalentities.TheirresponsibilitiesareoutlinedinfederalandTexasstatelaw,withstatuteguidingtheactionsthateachactorissupposedtotake.However,withinthe19countiesthatthisreportcovered,thesepracticeswerenotalwaysstandardized.Thefollowingsectionwilloutlinevariousentities’legalresponsibilitiesinmigrantdeathprocessing,includingwhatthisroleissupposedtolooklikeandwherecountiesmaydivergeintheirpractices.

Graphic1:MigrantDeathProcessinginSouthTexas

Source:AuthorElaboration

BorderPatrol.TheU.S.BorderPatrolisthefederalagencytaskedwithapprehendingmigrantswithintheborderregionandisfrequentlytherespondingagencyformigrantsindistress.Theseagentsoftendiscoverdeceasedmigrantsastheytrackindividualsandgroupsthroughranchlandorflyoverremoteareasinhelicopters.IncountieswithhighlevelsofmigrationandinteractionwithBorderPatrolagents,localsmaydirectlycalltheBorderPatrolwhentheydiscoverhumanremains.Between2012and2019,theBorderPatrollocatedonethirdofthe417casesinthedatasetthatrecordedthediscoveringparty.However,whiletheBorderPatrolisthefederalagencycharged

24

withaddressingunauthorizedmigrationintheborderregions,Texas’countiesareresponsibleforprocessingmigrantdeaths.WhenBorderPatrolagentslocatehumanremains,theycontactthecorrespondingsheriff’soffice.Whilethisstepismandatory,therelationshipbetweentheBorderPatrolandsheriffs’officesmayvarybycounty,dependingonthecounty’slocation,thefrequencyofmigrantdeaths,thesheriff’soffice’spersonnelnumbers,andpersonalrelationships.Forexample,inBrooksCounty,thesheriff’sofficeroutes9-11callsfrommigrantsindistresstotheBorderPatrol,giventhattheagencyhasmoreresourcesandpersonneltorespond.However,thereisnostandardprocedureforcooperationandsomesheriffs’officesincountieswithlownumbersofmigrantdeathsrarelycollaboratewiththeBorderPatrol.BorderPatrolagentsrecordmigrantdeathsintheBorderSafetyInitiativeTrackingSystem,whichincludesinformationonmigrantdeathlocationandthedeceased’sdemographics.17Thisdatabaseisusedtoanalyzetrendsinmigrantdeathsandtoallocatebudgetingforthecomingyear.Ifagentscandetermineadecedent’snationality,theBorderPatrolmayalsocontacttherelevantconsularoffice.However,theBorderPatroldoesnotappeartobecollectingdetailedinformationonlocationordemographics.AccordingtoaJanuary30,2020FreedomofInformationActresponseregardingdeceasedmigrants’nationality,sex,andage,thechiefoftheFOIAAppeals,Policy,andLitigationbranchwrote:“theUSBP[U.S.BorderPatrol]reportedthatitsimplydoesnotcollectmuchofthedatathatyourequested.”Additionally,itnotedthat“theagencydoesnotcollectGPSdataorotheraddressinformationaboutthedeceasedmigrantsitencounters.”Sheriff’s’Office.InSouthTexas,sheriffs’officesplayacentralroleinprocessinganddocumentingmigrantdeaths.Outsideofmunicipalities—incorporatedsettlementsthatincludecities,towns,andvillages—lawenforcementauthorityfallstocountysheriffs.ForthesprawlingcountiesthatcharacterizeSouthTexas,thismakesforalargejurisdiction.Sheriffs’officesmustrespondtoreportsofthediscoveryofhumanremainswithintheirterritory.Whensheriffs’officesarealertedtothediscoveryofmigrantremains,whetherbytheBorderPatrolorlocalresidents,theytypicallysendonetofourdeputiestophotographanddocumenttheremains,justastheywouldacrimescene.Thesheriff’sofficeisresponsiblefornotifyingothercountyofficialstotraveltothesceneofthedeath.Theseincludeajusticeofthepeacetoaidinthedeathinvestigationandafuneralhometoremovetheremainsfromthescene.InWebbCounty,thesheriff’sofficecontactstheWebbCounty’sMedicalExaminer’sOfficetoremovetheremains.Atthesceneofthedeath,asheriff’sofficeinvestigatorordeputygathersanddocumentsevidence.Thisprocessmayincludeinterviewingtheindividualthatdiscoveredthebody,takingphotosoftheremains,andsearchingthesurroundingarea.Somesheriffs’officesmayrequesttheassistanceofTexasGameWardens,TexasRangers,orlocalfiredepartmentstohelpretrievedrownedbodieswithsearchandrescueboats.Oncebackinthestation,thesheriff’sofficepersonnelcompleteanincidentreport,whichgenerallycontainsstandardinformationsuchasnames,date,andlocation,aswellasanarrativeoftherelevantfacts.MoredetailedincidentreportsincludeGPScoordinatesofthebody’slocationandtranscriptsofdispatchcalls.Onlythreeofthe15sheriffs’officesinterviewedforthisreport—BrooksCounty,KenedyCounty,andHidalgoCounty—proactivelygroupfilesrelatingtodeceasedmigrantsandseparatethemfromotherrecords.BrooksCountyorganizesthefilesinbindersbyyear,whileKenedyCountykeepstheminfilingcabinetsinchronologicalorder.HidalgoCounty’sresponsetoapublicrecordrequestalsoindicatesthatittracksmigrantdeathselectronically.Incontrast,sheriffs’officestaffinothercountiesmayoccasionallynoteadecedent’ssuspectedorconfirmedmigrationstatusinanincidentreportbutlackastandardizedmethodfortrackingthesecases.

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CountyJusticeofthePeace.Justicesofthepeaceareelectedjudgesthatholdvariousdutieswithinacounty,suchaspresidingoversmallclaimscourts,conductingmarriageceremonies,andcarryingoutinquests.18Theyarenotrequiredtohaveamedicalbackgroundormedicalknowledge,andmayhaveanotherfull-timejobwhileservingintheposition.Thejusticeofthepeace’sinquestisaninvestigationintothecauseandcircumstancesofadeathinordertodetermineifanunlawfulactwascommitted.19Inthecaseofmigrantdeaths,Texasstatutemandatesaninquest.tWhencalledtothesceneofadeath,thejusticeofthepeaceplaysseveralroles.First,heorsherecordsthetimeofdeathtobelistedonthedeathcertificate.Thisissometimesinterpretedas“pronouncingthepersondead,”butjusticesofthepeacedonotperformthisrole.Instead,theynotethetimeofdeath.20Second,justicesofthepeacemustdecidewhethertoorderafullorpartialautopsyfromaforensicpathologisttodeterminethenatureofthedeath.21However,ifthejusticeofthepeacebelievesthatthecauseandmannerofdeathareevidentbeyondareasonabledoubt—asmaybethecasewithmigrantdrownings—heorshehasthediscretiontoforegoanautopsyandsendthebodydirectlytoafuneralhome.Thecountycommissionerscourtpaysfortheautopsy,whichcanrangefromroughly$1,200to$3,000,dependingonthecomplexityofthecaseandthestateofabody’sdecomposition.22ForcountiesinSouthTexas,financialconsiderationsmayserveasdeterrencetoorderinganautopsy.23Ifthedeceasedindividualisunidentified,thejusticeofthepeacemaytakeadditionalsteps.Ifthereisnomeansofmakingapositiveidentification,orifofficialsdoubttheauthenticityofanidentificationtheyfindatthescene,thejusticeofthepeacehasthediscretiontoorderlaboratorytestsfromaforensicpathologisttohelpdeterminethedeceasedperson’sidentity.24Forcasesinwhichthebodyhasfullydecomposedandonlyskeletalremainsareavailable,thejusticeofthepeacemayseekthehelpofaforensicanthropologist.25Texaslawrequiresthatjusticesofthepeacekeepdetailedrecordsoftheinqueststheyconduct.26AccordingtotheTexasCodeofCriminalProcedure,theinquestrecord“mustincludeareportoftheevents,proceedings,findings,andconclusionsoftheinquest.Therecordmustalsoincludeanyautopsypreparedinthecaseandallotherpapersofthecase.Allpapersoftheinquestrecordmustbemarkedwiththecasenumberandbeclearlyindexedandbemaintainedintheofficeofthejusticeofthepeaceandbemadeavailabletotheappropriateofficialsuponrequest.”27Thepublichastherighttoinspecttheserecords.28FuneralHomes.Funeralhomesprovidesupporttocountyofficialsinprocessingmigrantremains.Funeralhomesareprivatelyoperated,for-profitcompaniesthatcompeteforthecounties’business,eitherthroughanopenbidprocessthatawardsacontracttothecheapestproviderorbymeansofalternatingamongvariousfuneralhomes.Whilemorepopulouscountiesusethebidorrotationsystems,smallercountiesinSouthTexasmayrelyononefuneralhometoservicetheentirecounty

tAccordingtotheTexasCodeofCriminalProcedure§49.04,thereare8instancesinwhichjusticesofthepeacearerequiredtocarryoutinquests,4ofwhichapplytothecircumstancesinwhichmigrantsarecommonlydiscovered:

(2)thepersondiesanunnaturaldeathfromacauseotherthanlegalexecution;(3)thebodyorabodypartofapersonisfound,andthecauseorcircumstancesofdeathareunknown,includinginstancesinwhichthepersonisunidentified;(4)thecircumstancesofthedeathindicatethatthedeathmayhavebeencausedbyunlawfulmeans;(6)thepersondieswithouthavingbeenattendedbyaphysician.

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orevenmultiplecounties.Thefuneralhome’sinitialroleistoremovethebodyfromthesceneandtransportittoitsnextdestination.uThemigrantremains’nextdestinationdependsonwhetherajusticeofthepeacedecidestoorderanautopsyoradditionaltests.Ifthisisthecase,funeralhomestafftransporttheremainstoamedicalexaminer’sofficeoraforensicanthropologist.However,ifthedecedentisidentifiedandthecauseandmannerofdeathhavebeenestablished,justicesofthepeacemaysendtheremainsdirectlytothefuneralhome.Inthesecases,funeralhomestaffworkwithconsularauthorities—andinsomecasesthedeceased’sfamilydirectly—tofacilitaterepatriationofthebody,skeletalremains,orcremationashes,dependingonthefamily’swishes.Ifthedecedentisunidentified,butthejusticeofthepeaceoptsnottoorderanautopsyorlaboratorytests,theremainsalsogotothefuneralhome.Texaslawrequiresthatthestaffthenstorethebodyinrefrigerationforatleasttendaysbeforeburyingit.29Funeralhomesdonothavethelegalauthoritytoidentifybodies.vInstead,somefuneralhomespostdeathnoticesinlocalpaperstonotifythepublicoftheperson’spassingandtohelplocatetheperson’sfamily.30Ifnobodyclaimsthebodyduringthetendayperiod,thefuneralhomearrangesforanindigentburial,whichischargedtothecountycommissioner.31Incountiesthatdonothaveindigentcemeteries,funeralhomesmaynegotiatewithprivatelyownedcemeteriesforburiallots.Somefuneralhomesreportthatthetotalcostoftheburialmayexceedwhatthecountypaysthem.w32Thereareconflictingstatutesregardingcremationofunidentifiedremains.TheTexasCodeofCriminalProcedureexplicitlystatesthatitisillegaltocremateunidentifiedbodies.Thecodestatesthat“Ifthebodyofadeceasedpersonisunidentified,apersonmaynotcremateordirectthecremationofthebodyunderthisarticle.”33However,intheabsenceofnextofkinorlegalexecutors,theTexasHealth&SafetyCodegrantsjusticesofthepeacetherighttocontroldispositionofthebody,includingtherighttocremate.34TheTexasHealth&HumanSafetycodealsopermitscrematoriumstoacceptunidentifiedremainsifcommissionerscourtsorothercountyofficials—namelyjusticesofthepeace—authorizethecremation.35Afteranautopsyorlaboratorytests,thefuneralhomemayalsotransporttheremainsbacktoitsfacilitytoprepareforrepatriationorburial.However,thisisnotthecasewiththeWebbCountyMedicalExaminer’sOffice,whereremainsdonotreturntothecountyofdiscovery.Instead,themedicalexaminersendsidentifiedremainsthatwillberepatriatedtotheSouthTexasMortuary&CremationServicesfuneralhomeinWebbCounty.RemainsthatarenotidentifiedareburiedinacemeteryinWebbCounty.MedicalExaminers.Medicalexaminersarephysiciansthathavetraininginforensicpathologyandtoxicology,andworktodeterminecausesofdeathbycarryingoutpost-mortemexaminationsoncorpses.Texasstatuterequiresthatcountieswithmorethan2millionresidentsappointamedicalexaminer,whileothercountiesmaydosovoluntarilybasedonneedandresources.36Ofthe254countiesinTexas,only12employmedicalexaminers.x37Inthose12counties,justicesofthepeacerelinquishtheirinquestdutiestothemedicalexaminers.38

uInWebbCounty,theOfficeoftheMedicalExaminerremovesthebodyfromthescene.vUnderTexaslaw,onlymedicalexaminers,justicesofthepeace,orothermedicallegalauthoritiessuchasdeathinvestigatorsmayidentifyabody.wTexaslawrequiresboththefuneralhomeandthejusticeofthepeacetokeeparecordoftheburial.xCountieswithmedicalexaminersincludeBexar,Collin,Dallas,Ector,ElPaso,Galveston,Harris,Lubbock,Nueces,Tarrant,Travis,andWebb.

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Ofthe19countiesincludedinthisreport,onlyWebbCountyhasestablisheditsownmedicalexaminer’soffice,which,inadditiontoWebbCounty,alsoservestenofthesurroundingcounties.yThismakestheWebbCountyMedicalExaminer’sOfficeanimportantentityforprocessingmigrantdeathsinSouthTexas.Othercountiesintheregionuseprivatepathologistsorsendtheirbodiestoamedicalexaminerinanothercounty,suchasNuecesorBexar.Insomecases,thisrequiresthefuneralhometotransportthebodyupto390milesround-trip.

Table1:MedicalExaminerbyCountyforIdentifiedorUnidentifiedSuspectedMigrants

County EntityPerformingAutopsyandLaboratoryTestsonBodies

DistancefromCountytoMedicalExaminer

Brooks WebbCountyMedicalExaminer 90miles

Cameron ValleyBaptistMedicalCenter 26miles

Dimmit WebbCountyMedicalExaminer 84miles

Duval WebbCountyMedicalExaminer 55miles

Edwards CentralTexasAutopsy 195miles

Hidalgo ValleyForensics 10miles

JimHogg WebbCountyMedicalExaminer 55miles

Kenedy NuecesCountyMedicalExaminer 60miles

Kinney BexarCountyMedicalExaminer 125miles

Kleberg NuecesMedicalExaminer 42miles

LaSalle WebbCountyMedicalExaminer 70miles

MaverickWebbCountyMedicalExaminer

BexarCountyMedicalExaminer

127miles

148miles

Starr WebbCountyMedicalExaminer 92miles

Uvalde BexarCountyMedicalExaminer 82miles

ValVerde WebbCountyMedicalExaminer 182miles

Webb WebbCountyMedicalExaminer --

Willacy ValleyForensics 39miles

Zapata WebbCountyMedicalExaminer 52miles

ZavalaWebbCountyMedicalExaminer

BexarCountyMedicalExaminer

95miles

120miles

Source:Interviewswithcountyofficials

yTheWebbCountyMedicalExaminer’sOfficeservesBrooks,Dimmit,Duval,Frio,JimHogg,LaSalle,Maverick,Starr,Webb,Zapata,andZavalacounties.

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Throughautopsiesandlaboratorytests,medicalexaminerscanhelpincreasethechancesofpositivelyidentifyingdeceasedmigrants.Themedicalexaminer’sprocessincludestakingfingerprints,recordingdentalrecords,notinguniquetattoos,andtakingx-raysinsearchofidentifyingfractures.ThisdataischeckedagainstCBP’sbiometricsdatabase.39IfmigrantshavepreviouslyenteredtheUnitedStatesandbeenincontactwithU.S.officials,theirbiometricinformationwillcreateamatch.SomemedicalexaminersandpathologistsalsouploadinformationtotheNationalMissingandUnidentifiedPersonsSystem(NamUs),whichishousedattheUniversityofNorthTexas’CenterforHumanIdentification(UNTCHI)andfundedbytheNationalInstituteofJustice(NIJ)attheU.S.DepartmentofJustice.NamUsoperatesasacentralizedclearinghousethatfamiliesandotherorganizationscanaccesstohelplocatetheirlovedones.DatabasesinNamUsincludeinformationregardingtheremains’geographiclocation,photographsofpersonalbelongingsfoundatthescene,demographicinformation,andotherdetailsthatmayaidinidentifyingthedecedent.40Whenthereisanewentry,NamUsautomaticallycross-checksitwiththeexistingentriestoseeifthereisapotentialmatch.However,notallmedicalexaminersandjusticesofthepeaceuseNamUs,andthereisnolawrequiringthemtodoso.Iftheindividualisnotidentifiedthroughlaboratorytests,themedicalexaminermayelecttotakeaDNAsamplefromthebody.Forsomemedicalexaminers,takingDNAfromanunidentifiedbodyisstandardoperatingprocedure.Forexample,theWebbCountyMedicalExaminertakesDNAsamplesfromalmosteverydecedentthatpassesthroughtheoffice,exceptthosewhohavealreadybeenidentifiedthroughothermeanssuchasfingerprints.41Asanaddedprecaution,theWebbCountyMedicalExamineralsotakesDNAfromremainsthatwerediscoveredwithidentification.Bycomparison,othermedicalexaminersmaynotalwayshavesuchrigorouspractices.Instead,theymayviewtheirprimaryresponsibilityasdeterminingthecauseandmannerofdeathandnotperformingidentityinvestigations.ForensicAnthropologists.ForensicanthropologistsgenerallycarryoutanyDNAanalysisorotherin-depthlaboratorytests.Iftheremainshavefullyskeletonized,thejusticeofthepeacemaychoosetosendthemdirectlytoaforensicanthropologist.ForcountiesinSouthTexas,therearethreeforensicanthropologyactorsthatassistwithprocessingofmigrantremains:theUNTCHI,theArgentineForensicAnthropologyTeam(EquipoArgentinodeAntropologíaForense,EAAF),andtheForensicAnthropologyCenteratTexasStateUniversity(FACTS).InadditiontohousingNamUs,theUNTCHIprovidesfreeforensicanthropologyservicesandisoneofthefewU.S.laboratoriesthatisaccreditedtouploadDNAsamplestotheCombinedDNAIndexSystem(CODIS).42CODISisaseriesofdatabasesfundedandmanagedbytheFederalBureauofInvestigation(FBI),whichcontainsDNAfrommissingandunidentifiedpeopleandcriminalinvestigations.Otherforensiclabswithinthestate—suchasFACTS—sendtheirDNAsamplestotheUNTCHItouploadintoCODIS.TheprocessingtimesforDNAanalysisandprofilematchesaretypicallysixtoeightmonths.CODIShasstrictrulesforitsDNAsamples.Toincludearelative’sDNAreferencesample,thefamilymembermustsignaconsentformandprovidethesampleinthepresenceofalawenforcementofficerorapprovedcriminaljusticeagencyrepresentative,suchasamedicalexaminerorconsularofficer.CODISpolicystatesthatDNAinitsmissingandunidentifiedpersonsdatabaseisnevercomparedagainstitscriminaldatabaseandthatpeoplecanaskfortheirprofilestoberemovedfromthedatabaseafterthesystemmakesamatch.43However,somefamiliesarestilluncomfortablewithCODIS’rules.Tomitigatethisanxietyandincreaseparticipation,theUNTCHIhascollaboratedwithcountyandcityofficialstohosteventsthatallowfamilymemberstoprovidereferencesamplesinmoretrustedenvironments.

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TheEAAFalsomanagesadatabaseonunidentifiedandmissingmigrants.TheorganizationworkstocollectDNAfamilyreferencesamplesinmigrantsendingcommunitiesinHonduras,ElSalvador,theMexicanstatesofChiapasandOaxaca,and,since2009,alongtheU.S.-Mexicoborder.44TheEAAFusesBodeCellmarkForensics,aprivatelabinVirginia,toprocessandanalyzeitssamples.UnliketheUNTCHIwhichreceivesfederalfundingandprovidesitsservicesfreeofcharge,BodeCellmarkForensicschargesforitstesting,makingitcost-prohibitiveforsomefamilies.zAlthoughtheEAAFpossessesDNAreferencesamplesfromthefamiliesofmissingmigrantsandCODIShousesDNAprofilesonunidentifiedhumanremains,U.S.policyrestrictionshavenotallowedforcross-referencingbetweenthetwodatabases,despiteyearsofnegotiations.45Forensicexpertshavesuggestedthatcross-referencingbetweentheEAAF’sdatabaseandCODIScouldresultinhundreds,ifnotthousands,ofpositiveidentifications.46Someorganizations,suchasFACTSatTexasStateUniversityandthePimaCountyMedicalExaminerinTucson,Arizona,haveutilizedbothdatabasestoincreasetheprobabilityofmakingapositiveidentification.ToaddressthedividebetweentheEAAF’sdatabaseandCODIS,theUNTCHIrecentlycreatedtheHumanitarianDNAIdentificationDatabase,whichusesCODISsoftware.ThedatabaseincludesalloftheUNTCHI’spreviousCODISentries,whichaccountforoverhalfofCODIS’totalentries.Insteadofsplittingthesamples,theUNTCHIisabletoduplicatetheDNAprofile,whichallowsittostreamlinecosts.ToencourageparticipationintheHumanitarianDNAIdentificationDatabase,theUNTCHIhasloosenedsomeoftherestrictionspertainingtolawenforcement’spresenceforfamilymembersprovidingDNAreferencesamples.Thedatabaseisstillinitsearlystagesand,ifitprovessuccessful,theUNTCHIhopestoincludeCODISentriesfrompartnersinCaliforniaandArizona.FACTSatTexasStateUniversityprovidesforensicanthropologyservicestothreecountiesinTexas:Brewster,Brooks,andJeffDavis.ItreliesontheUNTCHIforDNAanalysisunlessithasanidentificationhypothesis,inwhichcaseitsendstheDNAsampletoBodeCellmarkForensicsforentryintotheEAAF’sdatabase.FACTSalsocarriesoutexhumationsofunmarkedgravesalongthebordertoassistinidentifyingmigrantremains.ForeignConsulates.Consularofficesassistinidentifyingandrepatriatingdeceasedmigrantsandoftenfacilitateinformationexchangesamongfamilymembers,medicalexaminers,lawenforcementofficers,andfuneralhomes.Familiesofmissingmigrantsmayfeelmorecomfortableworkingwiththeirgovernment’sofficialsratherthancommunicatingdirectlywithU.S.authorities.Thismeansthatinsearchandrescuesituations,consularstaffmaychannelusefulinformationfromfamilymemberstotheBorderPatrol,suchasamigrant’slocation.WhileconsularstaffmayalsohelpobtainaDNAreferencesamplefromafamilymembertomakeanidentification.Consularauthoritiesmayalsoassistinrepatriatingtheircitizens’remainsonceadecedentisidentified.Somecountriesofferfinancialassistancetohelpoffsetthecostsofdeathcertificateprocessing,embalmingorcremation,andrepatriation,eitherbylandorbyair.Familiesgenerallypayforanyremainingrepatriationcosts,whichcandifferbyfuneralhomeanddestinationcountry.Currently,Mexico’sgovernment,throughitsnetworkofconsulates,offersuptoUS$1,550perdeceasedMexicannationaltocoverrepatriationcosts.ThisassistanceisalsoofferedforMexican

zInMay2020,theUNTCHIreportedthatitcosts$885toprocessafamilyDNAreferencesampleand$1,492foranunidentifiedhumanremainsDNAsample.ThisestimateincludesautosomalSTR,Y-STR,andmitochondrialDNAoneachsample,andlabor.FundingfromtheNationalInstituteofJusticecoverstheseexpenses.

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migrantswhodiewhileattemptingtoentertheUnitedStates.aaAtthesametime,thecostofacremationandrepatriationis$1,095attheSouthTexasMortuaryinWebbCounty,whileembalmingandrepatriationcanrunmuchhigherdependingonthefinaldestination.bbThismismatchbetweenavailablesupportandthefuneralhomepricesmeansthatMexicanfinancialsupportonlycoversthefullcostofacremationandnotanembalming.IfMexicanfamiliesprefertorepatriatetheembalmedremainsforburial,theywillhavetocovertheremainingbalance.Somefamiliesmaychoosetopaythisadditionalmoney,sincetheyopposecremationonreligiousgroundsorwishtoviewtheremains.

aaIn2016,Mexico’sconsularserviceswereabletoprovide$3,500perperson.In2017,thisamountchangedto$1,850andin2018itdroppedto$1,550.bbInMexico,thereisnorepatriationcostforcremation,sincetheashescanbereturnedtoMexicoforfreeinadiplomaticpouch.

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CostsofMigrantDeathsBordercrossingdeathsalsocreatecostsforSouthTexascounties,whicharesomeofthemostimpoverishedintheUnitedStates.Thesecostsmaybedirect,throughautopsiesorburials,orlessdirect,throughloststafftimeanddivertedresources.Yettheyaddupandcanmakeitdifficultforunder-resourcedagenciestofollowbestpracticeswhenrespondingtomigrantdeaths.Overwhelmeddepartmentsmaykeeppoorrecords,avoidorderingautopsies,andotherwisecutcornerstostaywithincountybudgets.BrooksCountyistheclearestexampleofthesecosts’effects.From2009to2013,morethan350peoplediedinthecounty,creatingabillofmorethan$628,000.Tosavecosts,BrookscountyofficialsoftenchosenottoorderautopsiesorDNAtestingfordeceasedmigrants,andthelocalcemeteryburiedthebodiesinunmarkedgraveswithoutrecordingtheburiallocations.47Thesemigrantsoftenhadlittlechanceofbeingidentifiedandrepatriatedtotheircountries.In2013,however,thesechancesincreasedslightly,whenforensicanthropologistsbeganexhumingtheremainsinthecountycemetery.48Sincereceivingstatefundingassistancein2013,BrooksCountynowroutinelyordersautopsiesandkeepssomeofthemostdetailedmigrantdeathrecordsintheregion.Overall,whentracedfromdiscoverytoburial,thedeathofasinglemigrantcostsacountyaminimumof$1,100.Thistotalassumesthatcountyofficialsdonotrequestanautopsy,paynothingforaburialplot,andusenospecializedequipmenttoretrieveadrownedindividual.However,whenfactoringintheseandothercosts,asinglemigrantdeathcouldcostacountyupwardsof$13,100.Table2outlinesthecostsforeachstateandlocalentityinvolvedinprocessingmigrantdeaths.International,federal,andstateauthorities,alongwithuniversitiesandcivilsocietyorganizations,alsofacecostsassociatedwithprocessingandidentifyingmigrantremains.49TheMexicanconsulateoffersbothfinancialandlogisticalassistancetofamilieswithmissingrelativesandstate-fundeduniversitiesmayexhumedecedentsatnochargetotheirfamilies.ccTheBorderPatroldoesnottrackcostsrelatedtosearchandrescueoperationsordeceasedmigrants.50

ccSeeAppendixFforabreakdownofMexicanconsulatesfinancialandpersonnelcostsrelatedtomigrantdeaths.

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Table2:StateandCountyCostsAssociatedwithBorderCrossingDeaths(PerDecedent)

Service InvolvedActors CostBreakdown ApproximateCost PaidBy

Respondtoandinvestigatescene

Sheriff’soffice Personneltime(3to5hours,1to4staff),equipment,gas

$130to$41051 County,statedd

Retrievedrownedbody Sheriff’soffice,occasionallyfiredepartments,gamewardens,orTexasRangers

Personneltime(3to5hours),searchandrescueequipment,gas

$240to$75052 County,stateee

Documentincident,collaboratewithexternalagencies

Sheriff’soffice Personneltime(3hours)

$40 County

Declaretimeofdeath,collectincidentinformation

Justiceofthepeace,medicalexaminer(WebbCounty)

Personneltime(1.5to3hours),gas

$55to$16053 County

Documentincident Justiceofthepeace Personneltime(1to3hours)

$40to$8054 County

Decedenttransportation,storage,casket,indigentburialservice

Privatefuneralhome,cemetery

$800to$1,30055

County,privatefuneralhome

Autopsy Medicalexaminerorprivatepathologist

$1,250to$3,00056

County

Microscopicslides Medicalexaminer $20perslide57 County

Decedentstorage Medicalexaminerorprivatepathologist

$50to$100/day,or$375flatrateff58

County

Burialplot Publicorprivatecemetery,privatefuneralhome

Nocost(donation)to$5,000gg59

County,privatefuneralhome

Exhumationfromburialplot

Decedent’sfamily,NGOs,universityanthropologydepartments,funeralhome,cemetery

$2,000 Decedent’sfamily,NGOs,state,hhfuneralhome

ddBrooksCountyhasreceivedstatefundingthroughtheOfficeoftheTexasGovernor’seGrantprogram.eeFiredepartments,gamewardens,andTexasRangerstypicallybecomeinvolvedonlywhensheriff’sofficeslackthespecializedequipmentortrainingnecessarytoretrieveabody.ffTheBexarCountyMedicalExaminercharges$50to$100aday,andtheWebbCountyMedicalExaminerchargesaflatfeeof$375.ggIntheabsenceofindigentcemeteries,funeralhomescontactprivatecemeteriesandnegotiateburialplotrates.Funeralhomespayanycostsnotcoveredbycounties.hhTheTexasstategovernmentprovidesfundingforpublicuniversityforensicanthropologydepartments.

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RecommendationsandBestPracticesWhilethisreportandthefollowingrecommendationsfocusonmigrantdeathprocessing,themostimportantpolicieswillalwaysbetheeffortsaimedatpreventingthesedeaths.HighnumbersofmigrantdeathsinSouthTexasandalongtheborderrepresentfailuresinU.S.immigrationandlaborpolicy,giventhemismatchofsupplyanddemandforlegalpathways.Thismeansthatwhilestreamliningpost-mortemprocessingiscriticaltoidentifyingremainsandkeepingarecordofdeaths,thesetasksshouldnotreplacenorprecedeanystepstoreducethenumbersofpeopledyingintheRioGrandeandTexasranchlands.Thereisalsononeedtostartpolicydiscussionsfromscratch.Twoyearsago,membersofCongressfromTexasintroducedthebipartisanMissingPersonsandUnidentifiedRemainsActof2018totheU.S.HouseofRepresentativesandSenate.60TheproposedlegislationwouldhavesupportedTexascountiesandnon-governmentactorsbyauthorizingfederalgrantsforprocessingmigrantremains,requiringthatfamilyDNAreferencesbeusedonlyforidentifyingmissingpersons,constructing170additionalrescuebeacons,andmandatingvariousgovernmentreportsonmigrantdeaths.Passingthisbillwouldrepresentastepforwardformigrants,theirfamilies,andbordercommunities.However,ithasnevermovedforward.Beyondfederallegislation,therearealsosmallerscalechangesthatcouldhaveanimportanteffectonmigrantdeathprocessing.Thesestepsinclude1)standardizingandincreasingtransparencyonmigrantdeathrecordkeeping;2)ensuringthatallremainspassthroughTexas’outlinedidentificationprocedures;and3)increasingstatefundingfortheseefforts.WhiletheprimarygoalshouldbereducingandeliminatingmigrantdeathsinSouthTexas,takingthefollowingstepswouldhelpstreamlinemigrantdeathprocessing,ensurethatalldeceasedmigrantsaretreatedequallyregardlessofwheretheydieandassistwiththeindividual’seventualidentificationandrepatriation.1.StandardizeRecordKeepingWhenamigrantdiesinSouthTexas,variousactorsareresponsiblefordocumentingthedeath,includingtheBorderPatrol,thecountysheriff’soffice,ajusticeofthepeace,afuneralhome,andpotentiallyamedicalexaminer.Whilethisinformationisfundamentalforidentifyingremains,pursuinginvestigations,andforunderstandingthescopeofmigrantdeathsinSouthTexas,deficienciesintheseagencies’datacollectionprocessescanlimittheseactivities.BorderPatrol.Formorethantwodecades,theBorderPatrolhasbeenresponsibleforcreatingandmanagingacentralizeddatabaseonmigrantdeathsalongtheU.S.-Mexicoborder.However,itisunclearwhatinformationtheBorderPatrolcollectsregardingmigrantdeathsortheirmethodsfordatacollection.Theagencyhasalsofacedmultipleaccusationsthatitdoesnotaccountforallmigrantdeaths.61Inlinewiththesecritiques,thisreportdocumentedmoredeathsinSouthTexasthantheBorderPatrolforfiscalyears2018and2019.ThisalsodoesnotincludethehundredsofRioGrandedrowningdeathswherethebodieswashedintoMexicanterritoryandwerenevercountedinBorderPatrolnumbers.ThesefindingssuggestthatthereisaneedfortheBorderPatroltoprioritizemigrantdeathinformationcollection,outlineagreementswithcountyofficials,andcollectandpublishmoredetaileddata.

● CreateDataSharingAgreementswithTexasSheriffs’Offices.TheBorderPatrolshouldcreatewrittenagreementswithTexassheriffs’officestodetailmigrantdeathinformationsharingpractices.Theseagreementsshouldincludeapubliclyavailable,standardizedmethodologyforidentifyingmigrantdeathsinthecounty,alongwiththestepsthatthe

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BorderPatrolandcountyofficialsshouldtaketosharethisinformation.Thiscouldincludeprovidingasecured,electronicformforsheriffs’officestofilloutwhentheydiscovermigrantremainsandBorderPatrolagentsarenotpresent.ThesestepswouldallowtheBorderPatroltohavegreaterdemographicinformationondeceasedindividuals.

● Cross-BorderMigrantDeathDataCollection.ThenumbersofdeceasedmigrantsintheBorderPatrol’sdatabaseshouldnotdependontheRioGrande’scurrents.Instead,theBorderPatrolshouldformanagreementwithMexico’sNationalMigrationInstitute(InstitutoNacionaldeMigración,INM)todocumentdrowningdeathsintheRioGrande.WhileINMisnottheagencyinchargeofdocumentingthesedeathsinMexico,itshouldforgeagreementswiththestate-levelagenciestoreceivetheinformation.TheBorderPatrolshouldpublishthisinformationwithitscurrentnumbersofmigrantdeathsbysector.

Sheriffs’Offices.Sheriffs’officesoftengatherthemostdetailedinformationaboutdeceasedmigrantsthroughcrimeorincidentreports.However,onlythreesheriffs’officesinthesurveyedSouthTexascountieshavesystemsinplacetotrackmigrantdeathrecords.Thesesystemsaresimpleandeffective:theBrooksCountySheriff'sOfficestoresmigrantdeathrecordsinbinders.TheKennedyCountySheriff’sOfficenotesthetopouterportionofcasefilesandstorestheminaseparatefilingcabinetshelf.WhileHidalgoCountyappearstohaveanelectronicsystemfortrackingmigrantdeaths.Afterreceivingapublicrecordsrequest,theDuvalCountySheriff'sOfficecreatedanewelectronicsearchcodetotrackmigrantdeathsinitsdatabase.

● Standardizeincidentreportinformation.AcrossSouthTexas,sheriffs’officesdonothaveastandardizedincidentreport.Instead,sheriffs’officesoftenusevarioustemplatesthatchangeovertime.Sheriffs’officesshouldencouragedeputiestostandardizetheirincidentreportsinlinewithbestpractices.Forexample,incidentreportsshouldalwaysattempttoincludeGPScoordinatesforthebodylocation,thediscoveringparty,arecordoftheindividual’sclothingandbelongings,anyavailabledemographicinformation,andclearphotosofthesceneandbelongings.

● Improvetrackingsystemsforelectronicandpaperfiles.Sheriffs’officesshouldcreateinternalsystemsfortrackingbordercrossingdeathsinboththeirelectronicandpaperfiles.Theseimprovementswouldfacilitateeffortstoidentifydeceasedmigrantsandassistcountyofficialswithbudgetingpurposesandwhenapplyingfortargetedgrants.

● IncreasetheUseofNamUs.Sheriffs’officesshoulduploadprofilesofunidentifiedremainstotheNamUsdatabase.Giventhatsheriffs’officepersonnelaretheindividualsdocumentingthesceneandtheindividuals’belongings,theyarewellpositionedtouploadthisinformationintothedatabase.

JusticesofthePeace.Texasstatuterequiresthatjusticesofthepeacekeeptheirinquestrecords.Thelanguagestatesthattherecordsmustincludeareportof“theevents,proceedings,findings,andconclusionsoftheinquest.”62Thereportmustalsocontainacopyoftheautopsyreport,ifperformed,andanyotherpertinentpapers.Despitetheseguidelines,notallinquestreportscontaintherequiredinformation.

● StandardizeInquestFormInformation.Justicesofthepeaceshoulduseastandardizedinquestformtoimproverecordkeeping.Currently,eachcountyhasadifferentsystemforrecordinginquests,andinsomecounties,thesystemmayvaryamongjusticesofthepeace.Justicesofthepeacemayevencreatetheirowninquestreportformuponenteringoffice.CreatingastandardizedformwouldimprovecompliancewithTexasstatuteandstreamlinerecordinspections.

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2.EnsureAllRemainsPassThroughOfficialBodyIdentificationProcessesSouthTexas’county-levelofficials—includingjusticesofthepeace,medicalexaminers,andfuneralhomes—areresponsibleforprocessingmigrantremainsandensuringthattheycanalleventuallybeidentified.TheseofficialsmayfollowTexasstatute,butthereareareasfordiscretionwithinthisstatute.Whilediscretioncanbuildflexibilityintothelaw,itmayalsohindermigrants’identification.JusticesofthePeace.Justicesofthepeacehavetheauthoritytoorderinvestigativeandlaboratoryteststohelpdetermineadeceasedperson’sidentity.63Thesetestsdifferfromautopsiesandincludetakingfingerprints,recordingdentalrecords,notinguniquetattoos,andtakingx-raysinsearchofidentifyingfractures.Whilethesetestsincreasethelikelihoodofidentifyinganindividual,Texasstatuteprovidesjusticesofthepeacewiththediscretiontoforegothem.64

● MandateInvestigativeandLaboratoryTestsforUnidentifiedRemains.LawmakersshouldamendtheTexasCodeofCriminalProceduretorequirejusticesofthepeacetosendunidentifiedbodiestoaforensicpathologistandunidentifiedskeletalremainstoaforensicanthropologistforinvestigativeandlaboratorytests.Thesetestsshouldbemandatedregardlessofwhetheranautopsyisnecessarytodeterminethenatureandcauseofdeath.

MedicalExaminers/Pathologists.Forensicpathologists—eitherintheirrolesasappointedmedicalexaminersorasprivatecontractors—areoftenresponsiblefortakingaDNAsampleandsendingittoalabforanalysis.DNAanalysismayhelptoidentifyremainswhenotherexaminationsproveinadequate.WhilesomepathologistshavemadeDNAcollectionastandardpractice,itisnotrequired.Instead,TexasstatuteonlynotesthatajusticeofthepeacecanrequestaphysiciancollectaDNAsampleforforensicanalysisandinclusioninCODIS.

● MandateDNATestingforUnidentifiedRemains.LawmakersshouldamendArticle63.056(a)oftheTexasCodeofCriminalProceduretoremovethejusticeofthepeace’sdiscretionaryauthority,andtorequirepathologiststotakeDNAsamplesfromallunidentifiedbodies.Incaseswheretheremainshaveskeletonized,thenewlanguageshouldalsoallowjusticesofthepeacetosubmitthebonesdirectlytotheUNTCHIinlieuofsendingthemtoapathologist.

FuneralHomes.Statelawsareunclear,ifnotcontradictory,oncounties’authoritytocremateunidentifiedremains.TheTexasCodeofCriminalProcedurestatesthat“apersonmaynotcremateordirectthecremation”ofunidentifiedremains.65However,theTexasHealth&HumanSafetycodepermitsthecremationofunidentifiedindividuals’remainswhenauthorizedbyacountycourt.66Thisdiscrepancyshouldbeaddressedtoavoidthecremationofanyunidentifiedindividuals.

● ProhibitCremationsofUnidentifiedRemains.TheTexasHealth&HumanSafetycodeshouldbeamendedtoremovecountyofficials’discretiontocremateunidentifiedremainsandensureitisnotinconflictwiththeTexasCodeofCriminalProcedure.Thiswouldpreservethepossibilityoffutureidentification,evenifpathologistsdidnotfirstcollectbiologicalreferencesamples.Itwouldalsograntmatchedfamiliestheabilitytoviewtheirrelatives’remainstoprovidecertaintyandclosure.67Additionally,religioustraditionsorculturalpracticesmayalsoopposecremation.

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3.SupportIncreasedFundingforCountiesMostofthecostsofprocessingmigrantdeathsfalltoSouthTexascounties.Someofthesecountiesareamongthestate’smostimpoverished,andthesecostscanputastrainoncountybudgets.AccordingtotheSmallAreaIncomeandPovertyEstimates(SAIPE)ProgramCensusdatafor2018,thepooresteightcountiesinTexaswereamongthosecoveredinthisreport.Intotal,13ofthisreport’s19countiesreportedmorethan25percentpovertyrates.68Migrantdeathprocessingcostscanreachthousandsofdollarsperindividualandcountyofficialsmaynothavetheresourcesorpersonneltoadheretobestpractices.OfficeoftheTexasGovernor.TheOfficeoftheTexasGovernorcanprovidetargetedfundingsupporttocountiesthroughitseGrantprogram.Previously,theOfficeoftheTexasGovernorhasprovidedsupporttotheBrooksCountySheriff'sOfficethroughtheeGrantprogramtohelpcovercostsassociatedwithprocessingmigrantdeaths.

● ProvideeGrantsforCountieswithMigrantDeaths.TheOfficeoftheGovernorshouldopenadditionaleGrantopportunitiesforSouthTexascountieswithhighmigrantdeathnumbers.Thesegrantsshouldtargetsheriffs’officesandjusticesofthepeace.Thefundingcouldbeprovidedasareimbursementforcostsorcouldbeearmarkedforspecificactivitiesinthefuture,suchaspersonnelhours,autopsies,andlaboratorytests.Theycouldalsocoverthecostofhiringadditionalstafforworkingovertimetodigitizeorscanrecordsandmodernizethesecounties’recordsystems.Overall,stategrantswouldprovideSouthTexascountieswithanincentivetoimprovetheirpracticesandhelpreducethefinancialstrainofprocessingmigrantdeaths.

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AppendixAppendixA:

Table3:SouthTexasCountiesByBorderPatrolEnforcementSector

RioGrandeValleySector LaredoSector DelRioSector

BrooksCounty JimHoggCounty DimmitCounty

CameronCounty LaSalleCounty EdwardsCounty

HidalgoCounty WebbCounty KinneyCounty

KenedyCounty DuvalCounty MaverickCounty

KlebergCounty ZapataCounty UvaldeCounty

StarrCounty ValVerdeCounty

WillacyCounty ZavalaCounty

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AppendixB:

Table4:RecordsObtainedbySource(2012-2019) 2012 2013 2014 2015 2016 2017 2018 2019

BrooksCountySheriff'sOffice 130 87 61 48 61 52 50 15

CameronCountySheriff'sOffice 1

DimmitCountySheriff'sOffice 4 4 2 4 4 1 4

DuvalCountySheriff'sOffice 12 2 7 1 2 1 2 7

HidalgoCountySheriff'sOffice 21 29 30 16 28 18 34 16

IOMData 3 13 18 24 25

JimHoggCountySheriff'sOffice 4 4 1 3 5

KenedyCountySheriff'sOffice 4 12 13 9 23 10 13 9

KinneyCountyJusticeofthePeace 3 2 1 3 1

KlebergCountySheriff'sOffice 2 2 1 2

LaSalleCountySheriff'sOffice 1 1 1

MaverickCountyJusticeofthePeace1 2 1 1 1 5

MaverickCountyJusticeofthePeace2 8 5 6 3 6 5 2

MaverickCountyJusticeofthePeace3-2 8 4 2 1 1 12

MaverickCountyJusticeofthePeace3.1 1 1 1 2 1 1 2

MaverickCountyJusticeofthePeace4 2 1 1 1 2

MaverickCountySheriff'sOffice 1 6 5 2 3

StarrCountySheriff'sOffice 9 4 3 1 9 9

TexasVitalStatistics 4 4 4 3 1 1 3

TexasTransnationalIntelligenceCenter 23

ValVerdeCountyJusticeofthePeace4 3 1 2 3

ValVerdeJusticeofthePeace1 1 1

WebbCountyMedicalExaminer 31 36 39 41 42 48 55 59

ZapataCountySheriff'sOffice 2 3 1

Total 236 194 180 140 197 181 197 194

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AppendixC:

Table5:RecordsObtainedbyCounty(2012-2019)

2012 2013 2014 2015 2016 2017 2018 2019 Total

Brooks 130 87 61 48 61 52 50 46 535

Cameron 2 2 2 4 3 2 3 1 19

Dimmit 4 4 2 4 4 1 7 26

Duval 12 2 7 1 2 1 3 7 35

Edwards 0

Hidalgo 22 31 32 17 29 21 38 17 207

JimHogg 5 4 3 6 5 23

Kenedy 4 12 13 9 23 11 15 9 96

Kinney 3 2 1 3 1 1 11

Kleberg 2 2 1 1 1 1 2 10

LaSalle 1 1 2 2 1 7

Maverick 13 13 9 11 18 17 16 32 129

Starr 9 4 3 1 10 9 2 2 40

Uvalde 1 1

ValVerde 4 1 1 2 4 6 18

Webb 31 36 39 41 42 48 55 59 351

Willacy 0

Zavala 0

Zapata 2 3 1 4 1 11

Total 236 194 180 140 197 182 197 193 1519

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AppendixD:

Table6:DeathsbyNationality(2012-2019)

2012 2013 2014 2015 2016 2017 2018 2019 Total

Belize 1 1

Brazil 1 1 1 3

Colombia 1 2 3

CostaRica 1 1

DominicanRepublic 1 1 1 3

Ecuador 1 1 2 1 1 1 2 9

ElSalvador 22 19 21 14 14 11 10 6 117

Guatemala 9 18 21 7 21 12 21 3 112

Honduras 12 14 7 2 8 6 14 14 77

Mexico 44 39 35 28 44 27 25 31 273

Nicaragua 1 1 2 1 1 1 7

Peru 1 1

Unknown 146 99 91 85 108 124 123 136 912

Total 236 194 180 140 197 182 197 193 1519

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AppendixE:

Table7:FemaleDeathsbyCounty(2012-2019)

2012 2013 2014 2015 2016 2017 2018 2019 Total

Brooks 23 21 19 4 5 6 5 5 88

Cameron 1 1 1 3

Dimmit 0

Duval 1 1 1 3

Edwards 0

Hidalgo 1 3 1 2 5 1 2 15

JimHogg 1 1 2 4

Kenedy 2 1 2 5 3 1 14

Kinney 0

Kleberg 1 1

LaSalle 0

Maverick 3 2 2 7

Starr 1 1 1 1 2 2 8

Uvalde 0

ValVerde 2 2

Webb 0

Willacy 0

Zavala 0

Zapata 0

Total 31 30 23 8 14 16 9 14 145

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Table8:MaleDeathsbyCounty(2012-2019) 2012 2013 2014 2015 2016 2017 2018 2019 Total

Brooks 74 48 30 26 43 26 31 10 288

Cameron 1 1 2 3 3 2 1 13

Dimmit 1 4 5

Duval 6 2 4 2 1 6 21

Edwards 0

Hidalgo 19 28 31 17 26 16 34 15 186

JimHogg 3 2 3 2 10

Kenedy 2 8 11 5 16 10 10 5 67

Kinney 3 2 1 3 1 1 11

Kleberg 1 1 1 1 4

LaSalle 1 1 1 3

Maverick 7 10 7 9 15 13 8 25 94

Starr 7 3 1 8 5 1 2 27

Uvalde 1 1

ValVerde 3 1 1 1 2 4 12

Webb 0

Willacy 0

Zavala 0

Zapata 2 3 1 1 7

Total 125 103 92 64 116 79 94 76 749

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AppendixF:Table9:MexicanGovernmentCostsAssociatedwithBorderCrossingDeaths(PerDecedent)

Service InvolvedActors CostBreakdown Approximate

Cost PaidBy

Consularmissingpersonsassistance

Foreignconsulate

Personneltime:Communicationwithfamilies,BorderPatrol,andMedicalexaminer;openingmissingpersonscase;DNAsamplingcoordination(4hours)ii69

$60jj70 Foreigngovernment

CremationConsulate,privatefuneralhomes,county

$1,095

Foreigngovernment,decedent’sfamily

Repatriationofremains

Consulate;Transportationagencies(e.g.airlinesortruckingcompany);privatefuneralhomes

Airorlandtransport,personneltime(10hours),equipment

$135to$4,63571

Foreigngovernment(Mexicangovernmentcoversupto$1,550perdecedent),decedent’sfamilykk72

iiThishourlybreakdownprovidesanestimateoftimespentfillingoutformsandcommunicatingwithfamilies,amongotheractivities.ThisreflectstheMexicangovernment’scostsandmaynotreflectthepracticesofotherforeigngovernments.jjThisreflectstheMexicangovernment’scostestimatesandmaynotreflectthepoliciesofotherforeigngovernments.kkAlthoughsomeCentralAmericancountrieshavealsosetupfundstoassistfamilieswithrepatriationcosts,reportssuggestthatfewfamiliesreceivethisassistance.InElSalvador,forexample,familiesreportedthatpublicofficialsvisitedtheirhomestodetermineiftheywerefinanciallyabletoshoulderrepatriationcosts.Accordingtothefamilies,theseofficialssuggestedtheyselltheircarsorgethomemortgagestopayforthereturnoftheirrelative’sremains.

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Endnotes

1M.KatherineSpradley,NicholasP.Herrmann,CourtneySieger&ChloeP.McDaneld,“IdentifyingmigrantremainsinSouthTexas:policyandpractice,”ForensicSciencesResearch,4:1,October29,2018.2DavidSpener,ClandestineCrossing:MigrantsandCoyotesontheTexas-MexicoBorder(Ithaca,CornellUniversityPress,2009).3Ibid.4“MexicanInfluxReported,”NewYorkTimes,July23,1949,https://timesmachine.nytimes.com/timesmachine/1949/07/24/84274923.html?pageNumber=7.5AlbertSteinberg,“Humane‘Villains’:TheU.S.BorderPatrolhaltsillegalmigrantsbythemillion--butwithallpossiblekindness,”NewYorkTimes,October8,1950,https://timesmachine.nytimes.com/timesmachine/1950/10/08/86467378.pdf.6 Spener,2009. 7 Ibid. 8U.S.Congress,House,ImmigrationReformandControlActof1986,99thCongress,https://www.congress.gov/bill/99th-congress/senate-bill/1200.9U.S.Congress,House,IllegalImmigrationReformandImmigrantResponsibilityActof1996,104thCongress,2dSession,https://www.congress.gov/104/crpt/hrpt828/CRPT-104hrpt828.pdf.10“BorderControl:RevisedStrategyisShowingSomePositiveResults,”U.S.GovernmentAccountingOffice,December1994,https://www.gao.gov/archive/1995/gg9530.pdf.11“IllegalImmigration:Border-CrossingDeathsHaveDoubledSince1995;BorderPatrol’sEffortstoPreventDeathsHaveNotBeenFullyEvaluated,”GovernmentAccountabilityOffice,August2006,https://www.gao.gov/new.items/d06770.pdf;KarlEschbach,JacquelineHagan,NestorRodriguez,RubénHernándezLéon,StanleyBailey,“DeathattheBorder,”TheInternationalMigrationReview,Vol33,No2,1989,430-454.12“SearchandRescueEffortsforFY2016,”U.S.DepartmentofHomelandSecurity,May23,2017,https://www.dhs.gov/sites/default/files/publications/CBP%20-%20Search%20and%20Rescue%20Efforts%20for%202016.pdf;GovernmentAccountabilityOffice,2006,p.11.13GovernmentAccountabilityOffice,2006.14BobOrtega,“BorderPatrolfailedtocounthundredsofmigrantdeathsonUSsoil,”CNN,May15,2018,https://www.cnn.com/2018/05/14/us/border-patrol-migrant-death-count-invs/index.html.15 Interview,KinneyCountySheriff. 16“Texas’BrooksCountyis‘DeathValley’formigrants,”NBCNews,July9,2014,https://www.nbcnews.com/storyline/immigration-border-crisis/texas-brooks-county-death-valley-migrants-n152121.17 U.S.DepartmentofHomelandSecurity,2017. 18DavidB.Brooks,“GuidetoTexasLawsforCountyOfficials,”TexasAssociationofCounties,2018.19TexasCodeofCriminalProcedure§49.01(2).20JusticesofthePeaceandConstablesAssociationofTexas,“Inquests,”TexasJusticeCourtTrainingCenter,2018,p.1. 21TexasCodeofCriminalProcedure§49.10(c);TexasCodeofCriminalProcedure§49.10(i).22 TexasCodeofCriminalProcedure§49.10(g)&(h). 23Ortega,2018.24TexasCodeofCriminalProcedure§49.10(k),(l)&(n).25 Ibid(n). 26TexasCodeofCriminalProcedure§49.15(a).27Ibid.28TexasGovernmentCode§27.004(a).29TexasHealth&SafetyCode§711.002(a-1);TexasAdministrativeCode,Title25,Part1§181.4. 30Interview,SunsetMemorialFuneralHome.31 TexasHealth&SafetyCode§694.002(a). 32 TexasHealth&SafetyCode§193.009;TexasCodeofCriminalProcedure§49.25,Sec.10b.

45

33 TexasCodeofCriminalProcedure§49.09(e). 34Ibid;TexasHealth&SafetyCode§711.002(a);TexasHealth&SafetyCode§716.101. 35 TexasHealth&SafetyCode§716.101.36TexasCodeofCriminalProcedure§49.25,Sec.1.37TexasJusticeCourtTrainingCenter,2018.38TexasCodeofCriminalProcedure§49.25,Sec.1239 RudyMaya,“WebbCountyMedicalExaminerexplainsbodytransferprocess,”KGNS,June21,2019,https://www.kgns.tv/content/news/Webb-County-Medical-Examiner-explains-body-transfer-process-511632931.html.40Spradleyetal.,2018.41Ortega,2018.42Spradleyetal.,2018. 43 Ibid;Ortega,2018. 44 Spradleyetal.,2018. 45 Ibid. 46 Ibid. 47 Ibid. 48 Ibid. 49 U.S.DepartmentofHomelandSecurity,2017. 50 Ibid. 51Interviews,sheriffs’offices.52Interview,EaglePassFireDepartmentchief.53Interview,ValVerdeCountyjusticeofthepeace.54 Ibid.55InterviewSunsetMemorialFuneralHomedirector;BudgetprovidedbytheBrooksCountySheriff’sOffice.56 Inquestrecordreviews;BudgetprovidedbytheBrooksCountySheriff’sOffice;FeeschedulepostedontheBexarCountyMedicalExaminer’sOfficewebsite. 57FeeschedulepostedontheBexarCountyMedicalExaminer’sOfficewebsite;Interview,WebbCountypublicinformationoffice.58Interview,BexarCountyMedicalExaminer;BudgetprovidedbytheBrooksCountySheriff’sOffice.59Interview,SunsetMemorialFuneralHomedirector.60MissingPersonsandUnidentifiedRemainsActof2018,U.S.HouseofRepresentatives,115thCongress,2ndSession,https://www.congress.gov/bill/115th-congress/house-bill/7218/text.61 GovernmentAccountabilityOffice,2006;Ortega,2018. 62 TexasCodeofCriminalProcedure§49.15(a). 63TexasCodeofCriminalProcedure§49.10(l)&(m).64Ibid.(k).65 TexasCodeofCriminalProcedure§49.09(e). 66TexasHealth&SafetyCode§716.101.67Spradleyetal.,2018.;Boss,Pauline.“AmbiguousLossintheFamiliesoftheMissing,”Lancet,vol.360,no.9350,December2002.68“SmallAreaIncomeandPovertyEstimatesProgram,”U.S.CensusBureau,2018,accessedMay12,2020,https://www.census.gov/programs-surveys/saipe.html.69 Interview,formerMexicanconsularofficial.70Ibid.71 Ibid.72 “EmptyPromises:GapsinElSalvador’sLegalFrameworkAddressingMigrantDisappearances,”BostonUniversitySchoolofLaw’sInternationalHumanRightsClinic,Medium,July1,2019,https://medium.com/@BUSLAHR/empty-promises-gaps-in-el-salvadors-legal-framework-addressing-migrant-disappearances-555efba06e0b.