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APPROACHING THE APPROACHING THE BREAKING POINT?: THE BREAKING POINT?: THE UNITED STATES-CANADA UNITED STATES-CANADA BORDER IN THE 21 BORDER IN THE 21 ST ST CENTURY CENTURY Arizona State University Arizona State University Victor Konrad, BPRI, Victor Konrad, BPRI, WWU/Carleton University WWU/Carleton University April, 2009 April, 2009

APPROACHING THE BREAKING POINT?: THE UNITED STATES-CANADA BORDER IN THE 21 ST CENTURY

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APPROACHING THE BREAKING POINT?: THE UNITED STATES-CANADA BORDER IN THE 21 ST CENTURY. Arizona State University Victor Konrad, BPRI, WWU/Carleton University April, 2009. Breaking Borders?. “Napolitano’s Priority: Canada Border” Washington Times January 26, 2009 - PowerPoint PPT Presentation

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APPROACHING THE APPROACHING THE BREAKING POINT?: THE BREAKING POINT?: THE

UNITED STATES-CANADA UNITED STATES-CANADA BORDER IN THE 21BORDER IN THE 21STST

CENTURYCENTURYArizona State UniversityArizona State University

Victor Konrad, BPRI, Victor Konrad, BPRI, WWU/Carleton UniversityWWU/Carleton University

April, 2009April, 2009

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Breaking Borders?Breaking Borders?

““Napolitano’s Priority: Canada Border” Napolitano’s Priority: Canada Border” Washington TimesWashington Times January 26, 2009 January 26, 2009

““Homeland Security chief says Canada-US Homeland Security chief says Canada-US border review ‘misconstrued’ border review ‘misconstrued’ Vancouver Vancouver Sun Sun February 27, 2009February 27, 2009

““The thickening situation is getting worse” The thickening situation is getting worse” Chairman, Blue Water Bridge Canada, Chairman, Blue Water Bridge Canada, Today’s Trucking Today’s Trucking March, 2009March, 2009

“ ‘“ ‘Thickening’ of the border still a worry for Thickening’ of the border still a worry for local and national officials” local and national officials” Brockville Brockville Recorder and Times Recorder and Times April 7, 2009April 7, 2009

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‘‘Broken’ Borders?Broken’ Borders?

““Our economy and security only function as well Our economy and security only function as well as our borders function.” as our borders function.” North America Next, North America Next, NACTS, ASU, February, 2009.NACTS, ASU, February, 2009.

““Although border management processes relate Although border management processes relate to a range of policy areas, those related to to a range of policy areas, those related to cross-border trade and travel flows are cross-border trade and travel flows are particularly significant in the context of the particularly significant in the context of the recent economic crisis and the new post-recent economic crisis and the new post-election momentum to rethink Canada-US election momentum to rethink Canada-US policy options. Our nations must aim to ensure policy options. Our nations must aim to ensure adequate security while not compromising our adequate security while not compromising our shared economic future nor accepting cultural shared economic future nor accepting cultural degradation in our borderlands.” degradation in our borderlands.” BPRI Border BPRI Border Policy Brief, Policy Brief, Winter, 2009.Winter, 2009.

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““Mending Walls?”Mending Walls?”

““A policy narrative on North American A policy narrative on North American borders…requires a discourse pattern borders…requires a discourse pattern that acknowledges asymmetries yet that acknowledges asymmetries yet constructs components of effective constructs components of effective interaction and alignment.”-Konrad, interaction and alignment.”-Konrad, 20092009

1. Platform of trust 2. Brand 3. 1. Platform of trust 2. Brand 3. Convey and celebrate integrative Convey and celebrate integrative process 4. Dimensional alignment: process 4. Dimensional alignment: articulate cross-border constructs articulate cross-border constructs with cross-border processeswith cross-border processes

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““The Border”The Border” The ‘problems’ of the border: negative The ‘problems’ of the border: negative

discoursediscourse ‘‘Priorities’ developed to deal with the Priorities’ developed to deal with the

problemsproblems Transition from security to Transition from security to insecurityinsecurity border border Dialectics of trade/security, trust/suspicion Dialectics of trade/security, trust/suspicion

etc.etc. ““Breaking points” emerge in border policy Breaking points” emerge in border policy Border policy responds to breaking points Border policy responds to breaking points

rather than to underlying problemsrather than to underlying problems ““Sustainable Security and Sustainable Security and

Competitiveness”?Competitiveness”?

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The future?The future?

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The Past.The Past.

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Border Problems AboundBorder Problems Abound

Need to differentiate, not lump problems:Need to differentiate, not lump problems: New, visible problems: terrorism, gunsNew, visible problems: terrorism, guns Endemic problems: environmental impactsEndemic problems: environmental impacts Recurrent difficulties: smuggling, Recurrent difficulties: smuggling,

immigrationimmigration Structural issues: exchange rate impactsStructural issues: exchange rate impacts Geography: extent, variation, fluctuation, Geography: extent, variation, fluctuation,

extremes. Most Canadians live in the extremes. Most Canadians live in the borderlands; most Americans do not.borderlands; most Americans do not.

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InsecurityInsecurity Response Re-BorderingResponse Re-Bordering

Congestion and wait times: the paradox of Congestion and wait times: the paradox of waiting in an expedited worldwaiting in an expedited world

Barriers to trade/lost time and money: $ Barriers to trade/lost time and money: $ billionsbillions

Security-scapes: the bristling border, “walls”Security-scapes: the bristling border, “walls” Expense of re-bordering: $ billionsExpense of re-bordering: $ billions Firearms: exploding concern crosses the Firearms: exploding concern crosses the

borderborder Drugs: the constant battle of supply Drugs: the constant battle of supply

interdictioninterdiction Illegal immigration: “the real problem”?Illegal immigration: “the real problem”? Disease: the unpredictable killerDisease: the unpredictable killer

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Braking at the Border!Braking at the Border!

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Do we need this?Do we need this?

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Lemons Lemons and and Drugs!Drugs!

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New routes under the border.New routes under the border.

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Are you carrying firearms?Are you carrying firearms?

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A very mad cow.A very mad cow.

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Across the Canadian border?Across the Canadian border?

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Thin line or Thick line?Thin line or Thick line?

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To understand the line between To understand the line between us…That is the challenge.us…That is the challenge.

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The Answer?The Answer?

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Thin LineThin Line

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The 20The 20thth Century Border Century Border

Multiple, convenient crossingsMultiple, convenient crossings Loosely defined hierarchy of crossingsLoosely defined hierarchy of crossings ‘‘Port Authority’Port Authority’ Smooth, eventless operationSmooth, eventless operation Strong border regionalizationStrong border regionalization Community across the borderCommunity across the border Borderlands cultureBorderlands culture Socialized borderSocialized border Layered border governanceLayered border governance

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Thick LineThick Line

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The 21The 21stst Century Border Century Border

Rationalized crossing systemRationalized crossing system Defined hierarchy of crossingsDefined hierarchy of crossings Variable thickness along the lineVariable thickness along the line Centralization and delocalizationCentralization and delocalization Mobilization and militarizationMobilization and militarization Streaming and corridor developmentStreaming and corridor development ‘‘Chain of command’ enforcementChain of command’ enforcement Strained borderlands cultureStrained borderlands culture Breaking points in operationBreaking points in operation

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““Thick Line” Border PrioritiesThick Line” Border Priorities

Fighting terrorism: initial DHS focusFighting terrorism: initial DHS focus Identity verification: WHTIIdentity verification: WHTI Regulating immigration: new DHS focusRegulating immigration: new DHS focus Sustaining trade flows: Canadian Sustaining trade flows: Canadian

emphasisemphasis Balancing security and trade: both sidesBalancing security and trade: both sides Enhancing corridors: both sides Enhancing corridors: both sides Managing the border: both sidesManaging the border: both sides

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The 9/11 EffectThe 9/11 Effect

““Blame Canada-A new US Army text Blame Canada-A new US Army text says our border is no safer than says our border is no safer than Mexico’s” Mexico’s” Maclean’s Maclean’s Dec. 1, 2008, 24.Dec. 1, 2008, 24.

9/11 had a sustained impact on export 9/11 had a sustained impact on export trade (Globerman and Storer)trade (Globerman and Storer)

Travel and tourism down in US; lost 1.6 Travel and tourism down in US; lost 1.6 million jobs in 2002, Milken Institutemillion jobs in 2002, Milken Institute

Does the WHTI enhance identity Does the WHTI enhance identity verification?verification?

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Viewing the broken ‘Border’Viewing the broken ‘Border’

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Priority: clearing the flowPriority: clearing the flow

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Keep on trucking?Keep on trucking?

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Managing the Border!Managing the Border!

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2121stst Century Canada-US Border Century Canada-US Border Border crossing network is product of Border crossing network is product of

interdependenciesinterdependencies Changes in traffic patterns, operations or Changes in traffic patterns, operations or

procedures, compound, ripple through procedures, compound, ripple through systems, and strike barrierssystems, and strike barriers

Impacts of traffic shifts, intensified scrutiny, Impacts of traffic shifts, intensified scrutiny, new technologies and rule changes often most new technologies and rule changes often most intense at outsetintense at outset

New procedures aimed at securing and New procedures aimed at securing and streamlining the border may alter as well the streamlining the border may alter as well the way the border works within and between way the border works within and between systems of security, transportation, trade, systems of security, transportation, trade, tourism, environment and other aspects of tourism, environment and other aspects of border structure and cultureborder structure and culture

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Breaking Point:Breaking Point:

Limit, threshold, tipping point or critical Limit, threshold, tipping point or critical level in re-bordering.level in re-bordering.

1.1. The point at which physical, mental The point at which physical, mental or emotional strength gives way or emotional strength gives way under stress.under stress.

2.2. The point at which a condition or The point at which a condition or situation becomes critical.situation becomes critical.

3.3. The point at which something or The point at which something or someone gives way under strain.someone gives way under strain.

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Breaking Point:Breaking Point:

When the impact of changes within or When the impact of changes within or between border systems is sufficient to between border systems is sufficient to disrupt or halt the use and operation of disrupt or halt the use and operation of the systems, a breaking point may have the systems, a breaking point may have occurred.occurred.

Breaking points are significant thresholds Breaking points are significant thresholds in the operation of systems because in the operation of systems because they may severely damage a system, they may severely damage a system, and its related systems, or shut it down.and its related systems, or shut it down.

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Breaking PointsBreaking Points

What leads to breaking points in re-What leads to breaking points in re-bordering?bordering?

Dissonance: inconsistent messagesDissonance: inconsistent messages Misinformation: not trueMisinformation: not true Delocalization: taking authority from localeDelocalization: taking authority from locale Centralization: keeping power in DC Centralization: keeping power in DC Increased flows of people and goodsIncreased flows of people and goods Funneling, re-routing, corridor Funneling, re-routing, corridor

enhancementenhancement Sudden changes, revisions, reorientationsSudden changes, revisions, reorientations

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Dissonance: Destiny? Borders?Dissonance: Destiny? Borders?

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Has Canada ever looked the other Has Canada ever looked the other way?way?

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BetrayalBetrayal

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MisinformationMisinformation

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FearFear

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SuspicionSuspicion

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EntitlementEntitlement

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IsolationismIsolationism

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The ELT FiascoThe ELT Fiasco

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Identifying Breaking PointsIdentifying Breaking Points

WA-ID-MT/BC border areaWA-ID-MT/BC border area The border POE hierarchyThe border POE hierarchy Sectors of cross-border activity (eg. Sectors of cross-border activity (eg.

Transport)Transport) Survey research design: interviews, Survey research design: interviews,

mail survey, focus groupsmail survey, focus groups Policy makers and policy analystsPolicy makers and policy analysts Breaking point modelBreaking point model

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Breaking Point ModelBreaking Point Model

other sectors

transportation

trade

security

tourism

environment

thin border

other sectors

transportation

trade

security

tourism

environment

Thick Border

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From Secure to Insecurity Border

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From Corridor to Gateway: 1. From Corridor to Gateway: 1. Delocalization and Breaking PointsDelocalization and Breaking Points

Reduction of ‘Port Authority’Reduction of ‘Port Authority’ Centralized, emergency governanceCentralized, emergency governance Risk definition and assessmentRisk definition and assessment Expansion and complication of Expansion and complication of

proceduresprocedures Disruption of borderlands cultureDisruption of borderlands culture Crisis managementCrisis management Breaking pointsBreaking points

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Breaking Points in the Cascade Breaking Points in the Cascade GatewayGateway

SectorSector Breaking Breaking PointPoint

ImpactImpact

EnvironmentEnvironment 9/119/11 Alliances Alliances suffersuffer

TransportatioTransportationn

No to more No to more trainstrains

VANOC chaosVANOC chaos

TourismTourism WHTIWHTI Travel downTravel down

SecuritySecurity Virtual wallVirtual wall Wait timesWait times

TradeTrade Over-Over-regulationregulation

Not in timeNot in time

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Anticipating Breaking PointsAnticipating Breaking Points

Operation and management of the US-Operation and management of the US-Canada border is a complex, evolving Canada border is a complex, evolving process that engages people, their process that engages people, their identities, exchange activities, identities, exchange activities, regulations and policies, interests and regulations and policies, interests and intentions, all at specific points along the intentions, all at specific points along the border.border.

Cross-sectoral analysisCross-sectoral analysis Spatial and temporal analysisSpatial and temporal analysis Refining the predictive modelRefining the predictive model Public policy implications Public policy implications

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From Corridor to Gateway: 2.From Corridor to Gateway: 2.Socialization of the GatewaySocialization of the Gateway

Simplification of proceduresSimplification of procedures Rationalization of infrastructureRationalization of infrastructure Move beyond risk managementMove beyond risk management Reinstatement of trustReinstatement of trust Mediation of agency and structure (eg. Mediation of agency and structure (eg.

IMTC)IMTC) Respond to underlying causes of Respond to underlying causes of

breaking pointsbreaking points Institutionalization of the GatewayInstitutionalization of the Gateway

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Border PossibilitiesBorder Possibilities

TrustTrust

IdentityIdentity Re-LocalizationRe-Localization Relocating securityRelocating security SustainabilitySustainability Cost reductionCost reduction Free tradeFree trade Environmental concernEnvironmental concern Borderlands cultureBorderlands culture

Trusted traveler Trusted traveler program?program?

Citizenship verification?Citizenship verification? Port authority?Port authority? Perimeter “light”?Perimeter “light”? Regulated flows?Regulated flows? Managed flows?Managed flows? Superhighway/Superhighway/

gateway?gateway? Natural corridors?Natural corridors? Humanized border?Humanized border?

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Look Ma! No border wall!Look Ma! No border wall!

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Small is good. Local is good.Small is good. Local is good.

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One card is enough.One card is enough.

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Technology needs to work, save Technology needs to work, save time and save money.time and save money.

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Why not an EDL for everyone?Why not an EDL for everyone?

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Sub-national cooperationSub-national cooperation

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Are gateways the new normal?Are gateways the new normal?

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Acknowledge emerging systemsAcknowledge emerging systems

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Educate borders awareness Educate borders awareness throughout the U.S.throughout the U.S.

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25% of the borderlands are held in 25% of the borderlands are held in public stewardship: template for a public stewardship: template for a

new border design?new border design?

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Protected in the US; Still dead Protected in the US; Still dead outside Canada’s parksoutside Canada’s parks

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A resilient and adaptive A resilient and adaptive borderlands cultureborderlands culture

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ConclusionsConclusions The border has become visible but it is The border has become visible but it is

being seen as a being seen as a problemproblem rather than as an rather than as an opportunity.opportunity.

The image of a broken border, combined The image of a broken border, combined with priorities to fix it, have resulted in with priorities to fix it, have resulted in breaking points in border management.breaking points in border management.

We need to rediscover and re-learn the We need to rediscover and re-learn the border before we re-invent it. Need border before we re-invent it. Need breakthroughs not breaking points.breakthroughs not breaking points.

A positive discourse pattern is the key to A positive discourse pattern is the key to developing a policy narrative on the developing a policy narrative on the border.border.

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Policy ImplicationsPolicy Implications

Recognize that the border runs through most Recognize that the border runs through most dimensions of Canada-US relations, and that dimensions of Canada-US relations, and that policy development needs to acknowledge the policy development needs to acknowledge the border effect.border effect.

The border has regional and local The border has regional and local characteristics that impact policy.characteristics that impact policy.

Large ports and corridors now dominate Large ports and corridors now dominate border visions, but small POEs can tell us border visions, but small POEs can tell us much about how borders work well.much about how borders work well.

The borderlands have deep culture to mediate The borderlands have deep culture to mediate policy.policy.