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The mayor of Ciudad Juárez, meanwhile, has threatened to sue a neighboring governor for shipping migrants to his town. It has become a game of political hot potato, with desperate Central Americans who are fleeing poverty and violence caught in the middle.

Elsewhere along the border, shelter officials say they manage lists of asylum applicants by name, nationality, age and documentation to assist Mexican officials who are complying with American border patrol mandates.

The Mexican government is resisting Mr. Trump in some ways, the official in Mr. López Obrador’s government insisted. Even acquiescing to the Trump administration on the Migrant Protection Protocols was done strategically, according to the official and two others briefed on the plan.

By allowing the program to start in San Diego and Tijuana, the Mexican officials argued, legal challenges to it in the United States go to the federal courts in the Northern District of California, which are generally seen as liberal. This matters at a time when many Americans are focused on how to beat Mr. Trump in the 2020 elections, in particular by leveraging the Mexican-American vote.

But many activists are far from confident that a legal challenge will put an end to the program.

“I think it’s an incredibly risky move,” said Stephanie Leutert, the director of the Mexico Security Initiative at the University of Texas at Austin. “I don’t think you should put your country’s foreign and migratory policy in the hands of a civil society organization in another country.”