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

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

CENTURYCENTURYMontana State UniversityMontana State University

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

May, 2009May, 2009

Breaking Borders?Breaking Borders?

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

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

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

““Borderline insanity” Borderline insanity” Maclean’s Maclean’s May 4, 2009 editorial on May 4, 2009 editorial on Napolitano’s gaffe about 9/11 conspirators coming from Napolitano’s gaffe about 9/11 conspirators coming from CanadaCanada

““Ridiculing US Official Just Made Your Border Wait Longer” Ridiculing US Official Just Made Your Border Wait Longer” Edward Alden, Council on Foreign Relations, April 28, 2009Edward Alden, Council on Foreign Relations, April 28, 2009

What’s Wrong?

““The Border”The Border”

The ‘problems’ of the border: negative discourseThe ‘problems’ of the border: negative discourse ‘‘Priorities’ developed to deal with the problemsPriorities’ developed to deal with the problems Transition from security to Transition from security to insecurityinsecurity border border Dialectics of trade/security, trust/suspicion etc.Dialectics of trade/security, trust/suspicion etc. ““Breaking points” emerge in border policy Breaking points” emerge in border policy Border policy responds to breaking points rather Border policy responds to breaking points rather

than to underlying problemsthan to underlying problems ““Sustainable Security and Competitiveness”?Sustainable Security and Competitiveness”?

The future?The future?

The Past.The Past.

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, immigrationRecurrent difficulties: smuggling, immigration 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.

InsecurityInsecurity Re-Bordering Re-Bordering Congestion and wait times: the paradox of waiting Congestion and wait times: the paradox of waiting

in an expedited worldin an expedited world Barriers to trade/lost time and money: $ billionsBarriers to trade/lost time and money: $ billions 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 borderFirearms: exploding concern crosses the border Drugs: the constant battle of supply interdictionDrugs: the constant battle of supply interdiction Illegal immigration: “the real problem”?Illegal immigration: “the real problem”? Disease: the unpredictable killerDisease: the unpredictable killer

Braking at the Border!Braking at the Border!

Are you carrying firearms?Are you carrying firearms?

A very mad cow.A very mad cow.

Across the Canadian border?Across the Canadian border?

The Answer?The Answer?

Thin LineThin Line

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

Thick LineThick Line

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

““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 emphasisSustaining trade flows: Canadian emphasis 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 Emphasizing technologyEmphasizing technology

The 9/11 EffectThe 9/11 Effect

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

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

Security still trumps tradeSecurity still trumps trade Does the WHTI enhance identity verification?Does the WHTI enhance identity verification?

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

Managing the Border!Managing the Border!

Without ‘port authority’?Without ‘port authority’?

Breaking PointsBreaking Points

What leads to breaking points in re-bordering?What leads to breaking points in re-bordering? Dissonance: inconsistent messagesDissonance: inconsistent messages Misinformation: simply not trueMisinformation: simply not true Delocalization: taking authority from localeDelocalization: taking authority from locale Centralization: keeping power in DC /OttawaCentralization: keeping power in DC /Ottawa Increased flows of people and goodsIncreased flows of people and goods Funneling, re-routing, corridor enhancementFunneling, re-routing, corridor enhancement Sudden changes, revisions, reorientationsSudden changes, revisions, reorientations

Loss of Trust: Has Canada ever Loss of Trust: Has Canada ever looked the other way?looked the other way?

BetrayalBetrayal

MisinformationMisinformation

FearFear

SuspicionSuspicion

EntitlementEntitlement

IsolationismIsolationism

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 proceduresExpansion and complication of procedures Disruption of borderlands cultureDisruption of borderlands culture Crisis managementCrisis management Breaking pointsBreaking points

Breaking Points in the Cascade Breaking Points in the Cascade GatewayGateway

SectorSector Breaking PointBreaking Point ImpactImpact

EnvironmentEnvironment 9/119/11 Alliances sufferAlliances suffer

TransportationTransportation No to more trainsNo to more trains VANOC chaosVANOC chaos

TourismTourism WHTIWHTI Travel downTravel down

SecuritySecurity Virtual wallVirtual wall Wait timesWait times

TradeTrade Over-regulationOver-regulation Not in timeNot in time

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. IMTC)Mediation of agency and structure (eg. IMTC) Respond to underlying causes of breaking Respond to underlying causes of breaking

pointspoints Institutionalization of the GatewayInstitutionalization of the Gateway

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 program?Trusted traveler program? Citizenship verification?Citizenship verification? Port authority?Port authority? Perimeter “light”?Perimeter “light”? Regulated flows?Regulated flows? Managed flows?Managed flows? Superhighway/gateway?Superhighway/gateway? Natural corridors?Natural corridors? Humanized border?Humanized border?

“Mending Walls?”

“A policy narrative on North American borders…requires a discourse pattern that acknowledges asymmetries yet constructs components of effective interaction and alignment.” Konrad, 2009

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

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

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

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

Sub-national cooperationSub-national cooperation

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

Acknowledge emerging systemsAcknowledge emerging systems

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

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?

A resilient and adaptive borderlands A resilient and adaptive borderlands cultureculture

21st Century Border Forum

Ensuring and balancing “Security,Prosperity and Mobility”

Working borders for a borderless world Border forum: ‘top down’ meets ‘bottom up’ Border stewardship, Border ‘watch’ Omdudsman? Ambassador? Commission? Forum 1. Cascadia 2. Western Interior 3. Great

Lakes 4. Laurentian/Northeast

ConclusionsConclusions

The border has become visible but it is being seen The border has become visible but it is being seen as a as a problemproblem rather than as an rather than as an opportunity.opportunity.

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

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

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

Policy ImplicationsPolicy Implications

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

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

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

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