Prepare Oven and Baking Dish
Preheat the oven to 350 degrees Fahrenheit. Spray a 9x13 baking dish with non-stick cooking spray to prevent sticking and make cleanup easier.
Cook the Meat Mixture
Heat a large skillet on medium-high heat and add the ground beef, green peppers, and onion. Cook until the beef is browned and the vegetables are softened. Drain any excess fat from the pan to keep the dish from becoming greasy.
Season the Mixture
Add the taco seasoning and water to the skillet and let it simmer for 1-2 minutes on low heat. This allows the flavors to develop and the seasoning to coat the meat evenly.
Combine Ingredients
Add the salsa, black beans, and cilantro to the skillet and mix until all ingredients are well combined. Remove the skillet from the heat once everything is incorporated.
Start Layering
Place two tortillas into the bottom of the baking dish. Cut one tortilla in half to fill the extra space and fully cover the bottom of the dish, creating the base of your lasagna.
Add First Layer of Beans and Meat
Spread 1/3 of the refried beans on top of the tortillas, followed by 1/3 of the taco meat mixture. Add a thin layer of shredded cheese on top.
Create Second Layer
Add two more tortillas on top of the cheese, followed by another 1/3 of the refried beans, 1/3 of the meat mixture, and another layer of shredded cheese.
Complete Final Layer
Repeat one more time with the remaining tortillas, refried beans, and meat mixture. Finish with the remaining two tortillas on top and sprinkle with the remaining shredded cheese.
Bake the Lasagna
Cover the baking dish with aluminum foil and bake for 30 minutes or until hot and bubbly. Remove the foil during the last 5 minutes of baking to allow the cheese to brown slightly.
Serve with Toppings
Remove from oven and let stand for 5 minutes. Add your favorite toppings like diced tomatoes, sliced olives, jalapeños, avocados, or sour cream before serving.