Printable Version

TERRORISM AND CANADIAN MOBILITY:
Trends in Canadian Immigration and the Canada-United States Border After the Bombings in the United States.

October 1st, 2001
By Jay Makarenko

It would not be an overstatement to assert that the recent terrorist bombings in the United States were watershed events. Not only did the death and destruction touch all of our lives on an emotional level, the events of September 11, 2001 will mark changes to the political and social lives of Canadians.

One area that is already beginning to feel the fallout of the terrorist bombings is Canadian mobility: that is, the movement, migration and immigration of persons into and out of Canada. Two components of Canadian mobility in particular are under immediate pressure: (1) Canadian immigration and (2) movement through the Canada-United States border.

In its response to the recent bombings, the United States has declared war on terrorism, with Canada poised to rally behind its neighbour. This war on terrorism will not be limited to simply those involved in the bombings. Instead, it will involve action against “terrorism” in general. In assessing trends in Canadian mobility, it thus becomes necessary to understand terrorism in Canada. The nature and scope of terrorism in this country will heavily influence Canadian and American policy in regards to immigration and the border.

Incidents of terrorist violence on Canadian soil are relatively uncommon, especially in regards to international groups. However, over the last thirty years, Canada has experienced some violent acts. These include domestic separatist violence in Quebec and ethnic, national and religious violence between groups represented in Canada. On April 5 1995, the Iranian Air Force conducted a bombing raid on a Mujahedin e-Kalg (MEK) base in Iraq. Subsequently, forty MEK supporters, armed with crowbars and mallets, attacked the Iranian embassy in Ottawa and wounded several persons. On February 15 1999, the leader of the Kurdistan Workers’ Party (PKK), Abdullah Ocalan, was arrested in Kenya. Subsequently, PKK supporters rioted in Montreal and Ottawa, seriously wounding several police officers.

While violent terrorist acts on Canadian soil are relatively uncommon, there has been a rising trend in terrorist support activities in Canada. As the 1999 Special Senate Committee on Security and Intelligence (the Kelly Committee) stated, Canada is “primarily a venue of opportunity to support, plan or mount attacks elsewhere and as a conduit to the United States.” CSIS has identified several specific support activities of international terrorists in Canada. Some of these include:

1. The planning and logistical support of terrorist operations in Canada and abroad.
2. Fraudulent use of travel documentation and illegal entry into Canada.
3. Procuring weapons and materials for terrorist operations.
4. Recruiting members and supporters.
5. Manipulating members of émigré communities in Canada.
6. Providing safe haven.
7. The use of Canada as a staging ground for terrorist acts abroad, in particular, the United Sates.

In sum, while violent terrorist acts do not commonly occur on Canadian soil, this country has experienced a rise in terrorist support activities. Terrorist organizations actively engage in recruitment and fundraising in this country. Furthermore, they use Canada as conduit and staging area into the United States. With the new war on terrorism, this situation will have a major influence upon trends in Canadian immigration and the Canada-United States border.

Canada is a country that is open to immigration: both in terms of the amount of immigrants we accept, as well as the origins and ethnic backgrounds of our immigrants. These trends are illustrated in the Immigration Plan for 2001 and 2002. The Plan calls for an overall increase in the number of immigrants that Canada will except over the next several years. Furthermore, while the Plan does place an emphasis on economic immigrants over families and refugees, absent is any explicit targeting of particular ethnic, national or religious groups (either as preferred or non-preferred immigrants.)

However, while being open to immigration, Canada has taken steps to protect itself from abuses of the immigration system. In June 2001, the House of Commons passed Bill C-11. While not yet proclaimed into law, the Bill will toughen immigration laws and strengthen the government’s security capacities. Under the Bill, persons who are engaged in terrorism, have a criminal record or represent a threat to Canadian security will be inadmissible to this country. If such persons already have resident status, the Bill permits the government to deport them without the right to appeal. In some circumstance, these persons may even be deported to home countries where they face torture. The Bill also allows the government to suspend civil liberties for visitors to Canada. For example, visitors under suspicion can be detained in custody without a warrant for their arrest.

As stated above, Canada has increasingly become an area for terrorist support activities. Individuals who have entered the country as immigrants or visitors often perform these activities. With the bombings in the United States and its subsequent war on terrorism, pressures have come to bear on past trends in Canadian immigration. However, early indicators suggest that, in general, our immigration policies will remain stable.

In his address to the House of Commons on September 17, Prime Minister Chretien assured Canadians that, where necessary, the government would take steps to increase the security of the nation. However, he also stated that “we will not give into the temptation, in a rush to increase security, to undermine the values that we cherish and which have made Canada a beacon of hope, freedom and tolerance to the world.” Referring directly to Canadian immigration, the Prime Minister asserted that “we will allow no one to force us to sacrifice our values or traditions under the pressure of urgent circumstances. We will continue to welcome people from the whole world. We will continue to offer refuge to the persecuted.”

The general stability of Canadian immigration is further suggested by the existence of Bill C-11. With the Bill, it unnecessary to rewrite our immigration laws to keep any possible terrorist or agent out of Canada. This bill provides the Canadian government with ample powers to act against suspected terrorists, criminals and subversives that have entered or attempt to enter the country.

U.S. Ambassador Paul Cellucci has recently made calls for the United States and Canada to establish a North American perimeter. Under such a scheme, the external borders of the two nations would be jointly managed, and Canadian and American customs and immigration laws would be harmonized. However, Canada’s immigration minister, Elinor Caplan, has rejected the concept of a North American perimeter. While stating that there would be increased cooperation between the two countries, she asserted that it was unlikely to lead to identical immigration laws.

However, this is not to say that it will be business as usual. While the immigration laws may not be changed, it is probable that the federal government will be more strict in the application of those laws. Furthermore, the Opposition has already made several calls for tougher laws to control who gets into Canada. If the world situation deteriorates dramatically, the calls for change by both the Opposition and the United States government will become extremely difficult to ignore.

The Canada-United Sates border is the longest undefended border in the world. Every year hundreds of billions of dollars in goods cross the border, as well as hundreds of millions of people. On February 25 1995, both countries announced the Canada-United States Accord on Our Shared Border. The Accord committed both governments to the following goals:

1. Promoting international trade
2. Facilitating the movement of people
3. Providing enhanced protection against illegal activities and the irregular movement of people
4. Reducing costs to both governments and the public

The Accord has led to the implementation of several new border processes and systems. In regards to cargo traffic through the border, several Commercial Vehicle Processing Centres (CVPC) were introduced that allow carriers from Canada to bypass Canada Customs and proceed directly to customs in the United States. Furthermore, both nations have worked together to institute the In-Transit Simplification Project. This project has significantly reduced the necessary steps and procedures for carriers when crossing the border on either side.

In regards to travelers crossing the border, Canada and the United Sates have implemented several systems to streamline customs and immigration processes. The Canadian CANPASS Highway program and the American PORTPASS program were introduced to speed up border crossings for low-risk, frequent commuters. Under these programs, travelers submitted to security checks and are issued decals that enable then to cross the border more quickly. Programs were also introduced that allowed travelers by private aircraft and boat to clear customs by telephone or radio. The governments of both nations have also introduce the NEXUS program that allows pre-approved, low-risk commuters to freely cross the border through the use of license plate readers, identification cards and proximity card technology.

As stated earlier, Canada has increasingly become a venue for the staging and planning of terrorist attacks. Consequently, the recent terrorist bombings in the United States and its war on terrorism have had an immediate impact upon movement across the Canada - United States border.

In the days that followed the bombings, trade across the border had slowed to crawl and American customs had intensified it checks of all vehicles attempting to cross. Normally unarmed Customs officers were joined by Border Patrol agents armed with automatic rifles and Immigration and Naturalization Service officers wearing bullet-proof vests. On the Canadian side, security was also heightened at all points of entry. Furthermore, alternative methods of reporting to customs were suspended. This included the Canadian CANPASS Highway Program, the American PORTPASS program, the NEXUS Program, and telephone reporting for private aircraft and boats.

In regards to long-term future trends, the horizon is ambiguous. The Canada-United States border is vital to the economies of both nations. Ambassador Cellucci has stated that neither country wants to hurt the “extraordinary” partnership and trading relationship between the two countries. Both he and Immigration Minister Caplan agree that maintaining an open border is important to the economy and interests of Canada and the United States. However, how this open border policy will continue is uncertain. As stated above, the United States has made calls for a North American perimeter. This would allow the United States to weed out possible terrorists as they enter Canada, as opposed to when they attempt to enter the United States from Canada. However, the Canadian government has been initially unreceptive to such a concept. Instead, Canada has advocated increased cooperation between the two nations and other alternative strategies. In a recent press conference, Revenue Minister Martin Cauchon indicated that technology might be the answer to border issues. What is certain, however, is that the lofty goals of Canada-United States Accord on Our Shared Border will be set aside for the time being.

In conclusion, trends in Canadian mobility have began to shift. In the past, Canada experienced relative freedom and openness in regards to its immigration policy and movement across the Canada-United States border. With the nature and scope of terrorism in Canada, the bombings in the United States, and its subsequent war on terrorism, pressures have been placed on this freedom and openness. Early indicators suggest general stability in Canada’s immigration policy. However, if the current situation were to deteriorate, calls for change by the Opposition and the American government will become powerful. The Canada-United States border has already experienced a significant deterioration in openness. This new trend will continue to a lesser extent as a balance will be struck between the economic and security needs of both nations.

Got an Opinion?
Send us a Letter to the Editor
or
Discuss in The Forums