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### Viewing cable 07OTTAWA2035, THE U.S. - CANADA BORDER IN 2007: GROUND TRUTH AND

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Reference ID | Created | Released | Classification | Origin
--- | --- | --- | --- | ---
07OTTAWA2035 | 2007-11-05 22:10 | 2011-04-28 00:12 | UNCLASSIFIED | Embassy Ottawa

`

    VZCZCXRO8427
    RR RUEHGA RUEHHA RUEHQU RUEHVC
    DE RUEHOT #2035/01 3092218
    ZNR UUUUU ZZH
    R 052218Z NOV 07
    FM AMEMBASSY OTTAWA
    TO RUEHC/SECSTATE WASHDC 6854
    INFO RUCNCAN/ALL CANADIAN POSTS COLLECTIVE
    RUEHME/AMEMBASSY MEXICO 1763
    RHFJUSC/BUREAU OF CUSTOMS AND BORDER PROTECTION WASHDC
    RHMFIUU/CDR NORAD PETERSON AFB CO
    RUEKJCS/CJCS WASHDC
    RULSJGA/COMDT COGARD WASHDC
    RUEAHLC/DEPT OF HOMELAND SECURITY WASHDC
    RUEAWJA/DEPT OF JUSTICE WASHDC
    RHMFIUU/HQ USNORTHCOM
    RUEAIAO/HQ ICE IAO WASHINGTON DC
    RHEHNSC/WHITE HOUSE NSC WASHINGTON DC

` `

    UNCLAS SECTION 01 OF 05 OTTAWA 002035

    SIPDIS

    SIPDIS

    E.O. 12958: N/A
    TAGS: PREL KCRM PGOV ASEC KHLS ECON CA
    SUBJECT: THE U.S. - CANADA BORDER IN 2007: GROUND TRUTH AND
    POLICY IMPLICATIONS (PART I OF III - SUMMARY, CONCLUSIONS,
    AND RECOMMENDATIONS

    SUMMARY
    -------------------------

    ¶1. (SBU) Managing U.S.-Canada relations means managing the
    border.  It's that simple.  And that makes the border the
    number one priority for Mission Canada.  For the past year
    dozens of officers from the Embassy and our seven consulates
    have fanned out across Canada to observe the border and
    discuss border issues with citizens and officials of both
    Canada and the United States.  Their conclusions and analysis
    are collected here, together with recommendations on how we
    can better manage our compelling national interest along this
    vital frontier.

    ¶2. (SBU) In general, the border works well, but there are
    places where increases in traffic and trade amidst aging or
    outdated infrastructure are causing unnecessarily long wait
    times.  We saw significant but piecemeal progress in border
    modernization.  We learned that the United States and Canada
    view the border differently, both in terms of its importance
    and the relative prioritization of security and openness, but
    both countries highly value the north-south linkages and the
    unique cross-border communities that dot the frontier.  We
    found that each border crossing has its own unique
    personality, which requires policy and regulatory flexibility
    to manage well.  We saw that the current environment is
    dominated by WHTI and the new post-9/11 security measures,
    particularly unilateral initiatives from the U.S. side.
    Finally, the sense we got from the ground was that the
    security threat is real but manageable without resorting to
    draconian, disruptive procedures.

    ¶3. (SBU) A number of concrete recommendations flow from these
    conclusions.  First, both countries need to more
    systematically manage improvements to border infrastructure.
    Secondly, we need to focus constantly on port of entry
    staffing, which can be a major factor in managing border
    flow.  Thirdly, the two governments should continue an open
    dialogue on how to further the agenda on cooperative policing
    and information sharing.  Fourth, we must inform the public
    in real time about changes, security, and regulations
    affecting the border.   Finally, we need a more systematic
    way to manage bilateral border issues, something akin to the
    Bilateral Consultative Group on counter-terrorism, which
    convenes all agencies on an annual basis to review issues and
    advance the agenda.   Maintaining the historically unique
    cross-border travel and trade relations, while ensuring
    security of both countries is all about managing change, and
    we hope that this cable will contribute to our ability to do
    so.

    ¶4. (SBU) This is a three-part cable series.  Part I covers
    the summary, conclusions, and recommendations.  Part II
    reviews ports of entry, the economy, and environmental
    issues.  Part III involves immigration, First Nations issues,
    WHTI, and cross border law enforcement.

    AMBASSADOR'S INTRODUCTION
    -------------------------

    ¶5. (SBU) On behalf of Mission Canada, I would like to  invite
    anyone with even a passing interest in our northern  border
    to peruse the year-long project we have just concluded to get
    a clearer snapshot of our border in the  year 2007.   You can
    Qa clearer snapshot of our border in the  year 2007.   You can
    access detailed reports submitted throughout the course of
    the year on our classified web site
    (http://ottawa.state.sgov.gov), and there is an extensive
    power point presentation on our State Department SBU intranet
    website under the Political Affairs Section - Reports and
    Cables (http://ottawa.state.gov) that provides a unique
    visual image of the border in 2007.

    ¶6. (SBU) This time last year, first in response to concerns
    on the part of Canadians and Americans from all walks of life
    and second as a contribution to implementation of the Western
    Hemisphere Travel Initiative, this Mission embarked on a
    nationwide, integrated border reporting project.  We traveled
    to almost every border crossing, talked to officials involved
    in border management, and visited communities in both
    countries most directly affected by new border measures.  We

    OTTAWA 00002035  002 OF 005

    heard how important it was to "get the border right"; we
    heard how the border is "priority one"; and we heard how the
    way of life among border communities was changing.  We saw
    how some new measures such as improved border infrastructure,
    additional lanes, plazas, and other equipment have made it
    easier to get across the border.  However, we also saw long
    back-ups and increasing inspections.  We found towns with
    libraries which straddle the border and others which could
    only be reached by traveling through the other country.  We
    visited border crossings marked by a chain across a dirt road
    and others with 14 inspection booths for truck lanes.

    ¶7. (SBU) The end result is a historic snapshot of our
    northern border in the year 2007.  It is a border at a
    crossroads, still in transition, moving away from the
    pre-9/11 optimism of open borders, with increasing volumes of
    just-in-time deliveries and communities connected by junior
    hockey and shopping, towards the concept outlined 5 years ago
    of a "smart border" that uses technologies to strengthen our
    border security while facilitating legitimate trade and
    travel.  The evolving vision that is captured here is of an
    intertwined frontier whose potential can only be realized
    through fulsome cooperation and constant attention by Canada
    and the U.S.

    COMMON THEMES AND CONCLUSIONS
    -----------------------------

    ¶8. (SBU) As dozens of officers representing six agencies
    traveled from the Embassy and our seven consulates to visit
    border posts and meet with citizens whose lives are affected
    by the border, they found a series of common themes:

    --   When It Works (which It Usually Does), It Works Well;
    When It Doesn't Work, It Is Awful:  In general we found a
    disconnect between the rhetoric of a "thickening of the
    border," in which longer lines and bureaucratic delays make
    border crossings more difficult, and the reality that the
    border in most places runs smoothly.  There are situations
    when the border simply can't handle the traffic volume,
    however.  Southbound delays of over two hours at some of the
    major bridge crossings in Ontario were reported over the 2007
    Labor Day weekend, for example.  Customs and Border
    Protection (CBP) inspection booths were fully staffed, but
    heavy volumes of traffic choked approach ways and slowed
    movement miles before the bridges.  The heavy traffic
    resulted from holiday weekend travel, a strong Canadian
    dollar, and fabulous back-to-school sales at malls in New
    York and Michigan, overwhelming the existing physical
    infrastructure at the border crossings.   (Comment:  The
    Canada Border Services Agency, CBSA, reported northbound
    delays of from two - three hours as Canadians came home after
    Labor Day.  End comment.)  Those places where thousands of
    vehicles are funneled into a narrow border crossing will
    require significant investments to make them capable of
    handling the crush of people traveling over holidays, or to
    witness major sporting or cultural events.

    --   Each Border Crossing Is Unique:  The difference between
    small, intimate border crossings in isolated areas of the
    Qsmall, intimate border crossings in isolated areas of the
    West and upper Northeast, and the industrial style crossings
    of the Great Lakes region, is huge.  This leads each border
    crossing to take on its own distinct personality:  bridges
    and tunnels are operated by different governance structures,
    each crossing has its own infrastructure issues, and
    relations among local communities are distinct.  Solutions to
    border issues should be very flexible to take account of this
    great diversity.

    --   The U.S. and Canada Weigh the Border Differently:  To
    Canadians, 90% of whom live within 100 miles of the border,
    keeping the border open and moving smoothly is a major
    national issue, because Canada is one large border community.
     This is not true for the United States, where only a
    fraction of the population lives near the northern border and
    only a few major cities, such as Detroit and Buffalo, are
    actually on the border.  The relative difference in
    prioritization of border issues often makes resolution of
    border issues inherently unequal.

    OTTAWA 00002035  003 OF 005

    --   Core Border Priorities also Differ:  The most obvious
    disconnect between the two countries is in their relative
    priorities on the border.  For Canada the number one priority
    is the free flow of people and goods in both directions.  For
    America the top priority is security.   Canadians see the
    border as something to be kept as invisible as possible.
    Post 9/11, Americans see the border as a last line of
    defense, the final place to check people or things coming
    into the country.

    --   For Both Countries, North-South Beats East-West:  The
    pull of the border is clear on both sides - an American
    living in northern Vermont is more economically integrated
    with a Quebecker across the border than with his fellow
    countryman in Indiana, while a Canadian in Vancouver would
    feel more comfortable with someone from Seattle than with a
    Manitoban.  Distinct cross-border cultures have been built up
    over several centuries and they are highly valued by those
    who belong to them, although arguably more by Canadians than
    Americans.  People on both sides believe these special
    relationships are worth preserving.

    --   Progress or Modernization Has Been Significant, but
    Piecemeal:  There has been a vast amount of border
    modernization by both countries.  The largest positive impact
    has come from enhanced infrastructure like the new truck
    plaza at the Champlain/LaColle crossing south of Montreal.
    There have also been significant advances in facilitating
    crossing and travel, like combining air, land, and sea
    components of the NEXUS trusted traveler program.   But the
    progress has not been comprehensive and has rarely been part
    of a strategic plan, instead depending on local or regional
    initiatives.

    --   Biggest Negative Is Unilateral Initiatives:  The most
    common refrain we hear from business is, "When are you going
    to stop?"  Business figures complain about new security
    initiatives that make crossings more difficult, or more
    costly:  the surprise APHIS inspection fee, the Bio-Terrorism
    Act, impending WHTI implementation, Hazmat ID for truckers,
    etc.  At the low end, these unilateral U.S. initiatives that
    have not been well explained in Canada lead to frustration
    and distrust, at the high end to avoidance of the border.  To
    Canadians, the trend in the U.S. seems to be moving in the
    direction of increasing unilateralism, without advance
    consultation with the Canadians, compared to the immediate
    post-9/11 period when the joint shared border programs were
    launched.  We can combat this misperception by increasing the
    interaction of U.S. agencies involved in border enforcement
    with their Canadian counterparts.  Canadians have so far (1)
    complained about new programs, but then (2) buckled down and
    figured out how to comply with the new requirements.

    --   Border Threat Is Real but Manageable:  The border
    threat stems from two key factors:  1) the inability to
    police such a wide area of complicated geography, and 2) a
    handful of extremists who make use of legal protections to
    continue to operate freely in Canada.  The issue is
    exacerbated by the inability of the U.S. and Canada to fully
    Qexacerbated by the inability of the U.S. and Canada to fully
    share law enforcement and terrorist information.  The best
    defense in the face of these realities is better intelligence
    and cooperative policing.

    RECOMMENDATIONS FOR MANAGING CHANGE
    -----------------------------------

    ¶9. (SBU) If there is one key to keeping the border open
    without sacrificing the safety of our citizens, it is
    managing change -- change in infrastructure, change in
    border crossing procedures, and change in the nature of
    cross-border communities.  All must be managed flexibly,
    transparently, and inclusively.  Emerging from this project
    are several recommendations for how we can best manage the
    many changes that will face us across the border.

    -- Keep an Eye on Infrastructure:  There are at any given
    time dozens of infrastructure projects underway along the
    border - from large-scale endeavors such as enhancements to
    the Detroit-Windsor bridges, to renovations of small border
    crossing posts in rural areas.  Canada is fairly strategic

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    about how these projects are planned and tracked, while the
    U.S. side is decentralized.  We should consider taking a more
    strategic approach to infrastructure, since this will, in
    many places; determine how well the border works.  A northern
    border infrastructure coordinator in Washington could help
    coordinate major border infrastructure projects to ensure
    they are synchronized, progressing, and successful.

    -- Keep Staffing Levels Up:  Adequate port of entry staffing
    is key to facilitating crossings while ensuring security
    along the land border.  The minimum time needed to process
    persons applying to enter the U.S. is fairly fixed.  Once a
    passenger vehicle reaches the inspection booth, the query
    process is oftentimes completed in seconds, not minutes.
    However, if lines begin to form long distances from the
    inspection booths, and travelers see that only half of the
    booths are open, they are bound to be frustrated.  There are
    simply few ways to cut corners on border staffing, and when
    staffing is not adequate, the result is delays.  Port of
    entry staffing levels must have sufficient flexibility to
    cover seasonal variations and shifting travel patterns,
    including holidays in both countries.  (Comment:  Despite the
    long backups experienced by Ontario border operators this
    past summer, border operators were generally complimentary of
    U.S. CBP's quick response time to fully staff available
    booths when backups were forming.  And, to be fair to CBP and
    CBSA, we understand that high traffic volumes during peak
    times may overwhelm existing infrastructure, causing lines to
    form even with all booths fully staffed.  End comment.)

    -- Continue to Press for Cooperative Policing:  The key
    imperative for cross-border security will be continuing to
    develop a mechanism for cooperative cross-border law
    enforcement.  We have scratched the surface, with Integrated
    Border Enforcement Teams, Shiprider Proofs of Concept, and
    the Cross Border Crime Forum.  But all venues to date have
    involved either temporary or partial integration.  We should
    work toward the kind of cooperation and integration of U.S.
    and Canadian law enforcement officials that we have had for
    military cooperation through NORAD.

    -- Improve Information Sharing:  Improved sharing of
    actionable law enforcement information is a key near-term
    goal.  We currently share threat information but often do not
    share the kind of background that would allow the other side
    to develop a full threat picture.  Part of the difficulty, of
    course, is that the Canadian Charter of Rights sets forth
    very strict right-to-privacy requirements.  Our law
    enforcement efforts on both sides of the border would benefit
    from a mechanism that would help us to get beyond the fallout
    from the Arar affair and engage in a free and continuous
    exchange of information on the entire range of cross-border
    law enforcement and counter-terrorism issues.

    -- Improve the Flow of Public Information:  Border rumors and
    lack of full information about upcoming regulation changes
    hurt us.  The resulting uncertainty causes citizens to delay
    or cancel travel, and leads to back ups at border crossings
    Qor cancel travel, and leads to back ups at border crossings
    as unprepared travelers do at the customs booth what they
    could have done in advance in preparation for travel.  We
    need new and better ways to communicate changes to border
    requirements, which should be announced well in advance and
    kept on track once announced.  We should aim for a regime of
    "no surprises."

    -- Finally, Keep Each Other Informed:  We should also enhance
    our border consultative mechanisms.  We have the Permanent
    Joint Board of Defense for military cooperation, the
    Bilateral Consultative Group for counter-terrorism
    cooperation, the Energy Consultative Mechanism for energy
    issues, and the International Joint Commission for boundary
    water management.  Given the complexity of the border and the
    many agencies and equities involved, an annual meeting along
    the lines of the other successful bilateral mechanisms we
    have with Canada could go a long way to bringing a strategic
    focus to our management of the border.  We might, for
    example, enlarge the number of agencies participating in
    meetings of CBP's and CBSA's Shared Border Accord
    Coordinating Committee (SBACC) to include all of those with a
    role to play in managing the border.  Messages II and III of

    OTTAWA 00002035  005 OF 005

    this three-part message contain the full report of our
    year-long investigation of the U.S.-Canada border in 2007.

    Visit our shared North American Partnership blog (Canada &
    Mexico) at http://www.intelink.gov/communities/state/nap

    Visit our shared North American Partnership blog (Canada & Mexico) at
    http://www.intelink.gov/communities/state/nap

    WILKINS

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