In the 'Defence' of Cities: a History Of

In the ‘Defence’ of Cities: A History of Security Planning in Canada by Jason Robert Burke A thesis submitted in conformity with the requirements for the degree of Doctor of Philosophy Department of Geography and Program in Planning University of Toronto © Copyright by Jason Robert Burke (2012) In the ‘Defence’ of Cities: A History of Security Planning in Canada Jason Robert Burke Doctor of Philosophy Department of Geography and Program in Planning University of Toronto 2012 Abstract Since the terrorist attacks of September 11, 2001, urban spaces have become increasingly subject to various methods of surveillance and control, especially by physical means. Yet, while 9/11 acted as a catalyst for rapid increases in security measures, the process of securitization has a much longer history. Accordingly, this research looks at how security has been planned and how this has changed over the last four decades in the context of Canada. The dissertation focuses on three Canadian case studies to explore the evolution of security planning: the October Crisis with an emphasis on Montreal (1970), the Asia Pacific Economic Cooperation summit in Vancouver (1997), and the 2010 Vancouver Winter Olympic Games. Each case represents a significant moment in Canadian security planning and provides insight into the shifting structure of Canada’s security apparatus. Furthermore, these cases offer a lens into the historical transformations of the Canadian ‘security state’. While the issues and actions associated with these cases cut across local, national, and international scales, the impacts of security measures in each were mostly local and ii urban. To show how Canadian urban spaces have been transformed and controlled by an evolving security framework, I argue that security planning must be understood as a form of urban planning, although one that remains to be properly acknowledged by the profession or even the academic discipline of planning. Given the democratic claims of liberal planning and its professed concern for the good city, it is therefore significant that the security measures studied in these case studies were implemented without democratic scrutiny but with significant consequences for urban experience. This dissertation tells a story of security planning in Canada, demonstrating how its practices have changed over time in ways that are at odds with liberal political values cherished by mainstream planning. iii Acknowledgements In 2006, a year before I started my studies at the University of Toronto, I met Deborah Cowen, who at the time was a post-doctoral student. She took a keen interest in my Master’s research on anti-terrorism security planning and encouraged me to apply to a new PhD program in Planning within the Department of Geography at the University of Toronto. Before we had any formal working relationship, Deb helped me formulate my master’s thesis. Her profound insights into my work and her ability to simplify complex issues helped me to complete my master’s and find the confidence needed to pursue a PhD. Throughout my PhD program, Deb has been an incredible mentor and a continued source of inspiration. In some of my most difficult academic moments, I would turn to Deb for her ability to clarify, in precise detail, some of my most pressing intellectual challenges. I want to thank her for her guidance and support over the years. When I finally began the PhD program in 2007, I felt somewhat dislocated. Coming from a European institution—where I completed my Master’s—it took me some time to adjust back to the North American system. Feeling overwhelmed with my PhD experience, I was searching for an advisor. In October of that year, I went to a book launch, where I met Matthew Farish for the first time. We spoke about my research topic and he demonstrated a tremendous amount of knowledge regarding my subject. It was ultimately his enthusiasm for my project that led me to ask him to be my principle supervisor. He agreed, and I can say with full confidence that he has exceeded all my expectations. His reliability and dedication, not only to this project, but also towards my overall academic growth, has been instrumental in this endeavour and I want to thank him for the countless hours he has committed to my work. At the University of Toronto, I want to thank the other members of my committee, Kanishka Goonewardena and Amrita Daniere. My conversations with Kanishka have always been profound and provocative. Thank you for pushing me to think more critically and analytically about my project. It has also been a privilege to work with Amrita. Her insights into my project and into my academic undertakings have always been greatly appreciated. Katherine Rankin and the administrative staff within the Department of Geography and Planning have also provided tremendous support, for which I am grateful. My cohort has also been a source of support throughout this experience. Thanks to Martine August, Heather Dorries, Carolyn Hatch, Jessica Wilczak, Raktim Mitra, Shiri Pasternak, Amy Cerevanen and David Roberts. There are countless others whom I have befriended and interacted with in the department and I thank all those people for creating a stimulating academic environment. My project could not have been possible without financial support from the Social Science and Humanities Research Council of Canada and the Ontario Graduate Scholarship. As a result of this funding, I was able to travel to Vancouver, Ottawa, and Montreal several times for my research. In Vancouver, I want to thank the late William iv Farish for putting me in contact with many people at the City of Vancouver. I also want to thank all the interview participants and my friends Heather Magnin, Chantelle Krish (and Tilman), and Travis Johnson for providing excellent lodging and hospitality while in Vancouver. While the last five years have been challenging, my family has been extremely supportive throughout. I want to thank Mom, Dad, David, Isabelle Scott, Metro and Mary Kozak, and The Giesens for their sustained confidence in my abilities and for their perpetual encouragement. I will be forever grateful for your generosity and moral support. Renata Kozak has also kept me grounded throughout the program. Your plants were morally uplifting and our entertaining phone calls were a welcomed break from the PhD slog. Finally, I will be forever grateful to Myron Kozak for his unyielding love and support. No matter what, you have stood by me during this long road and always understood the challenges I was dealing with. Thank you for continuing to stand by me and for making sure that I did not lose sight of my goals. v TABLE OF CONTENTS ABSTRACT II ACKNOWLEDGEMENTS IV LIST OF TABLES VIII LIST OF FIGURES VIII LIST OF ACRONYMS IX LIST OF APPENDICES XI INTRODUCTION: URBAN SECURITY AND INSECURITY IN CANADA 1 RESEARCH QUESTIONS 3 THE CONNECTION TO PLANNING 6 METHODOLOGY 12 STAGE ONE: ARCHIVES 14 ACCESS TO INFORMATION 18 STAGE TWO: INTERVIEWS 19 INTRODUCTION TO THE CASE STUDIES 21 THE OCTOBER CRISIS 22 THE APEC SUMMIT 23 THE VANCOUVER WINTER OLYMPIC GAMES 25 RATIONALE FOR THE CASE STUDIES 26 OUTLINE OF THE DISSERTATION 27 CHAPTER 1: PLANNING A SECURITIZED WORLD 31 THE HISTORICAL LINK BETWEEN PLANNING AND SECURITY 32 THE DIALECTIC OF PUBLIC SPACE 40 TOWARDS AN UNDERSTANDING OF SECURITY 42 FREEDOM VERSUS SECURITY 46 THE SECURITY APPARATUS 50 A HISTORY OF SECURITY INTERVENTIONS IN CANADA 53 CHAPTER 2: THE URBAN CONTOURS OF THE OCTOBER CRISIS 57 THE URBAN SCALE OF THE OCTOBER CRISIS 59 THE HISTORICAL CONTEXT 61 MONTREAL AT THE CENTRE OF TURBULENCE 68 PLANNING FOR AN URBAN INSURRECTION 74 THE OCTOBER CRISIS 83 THE IMPACT OF THE SECURITY MEASURES 92 DISSENT AND THE SPACE OF EXCEPTION 96 THE GOVERNMENT’S NEW SECURITY STRATEGY 100 THE TRAJECTORY OF THE SECURITY APPARATUS 103 THE END OF THE CRISIS AND THE FUTURE OF SECURITY 107 vi CHAPTER 3: SETTING A NEW COURSE: HOW SECURITY TRIUMPHED OVER FREEDOM AT APEC 111 CHANGES TO THE CANADIAN SECURITY APPARATUS 113 ANTI-GLOBALIZATION AND THE POLICING OF PROTEST 115 SECURITY PLANNING FOR THE APEC SUMMIT 119 LEARNING FROM THE PAST 121 A NOVEL IDEA: THE INTEGRATION OF SECURITY 122 THE PHYSICAL SECURITY FOR THE EVENT 124 COLLECTING SECURITY INTELLIGENCE 128 THE RESTRICTION OF DISSENT ON UBC CAMPUS 134 THE POLITICS OF SECURITY PLANNING 138 RESTRICTING THE ‘SIGNS’ OF PROTEST 144 THE COMMISSION OF INQUIRY 157 THE LEGACY OF APEC SECURITY PLANNING 163 CHAPTER 4: RATIONALIZING SECURITY PLANNING FOR THE 2010 VANCOUVER OLYMPICS 169 URBAN SECURITY AND MEGA-EVENTS 172 SECURING A REGION; PROTECTING THE GAMES 174 THE SECURITY BUDGET 177 SECURITY LOGIC AND THE THREAT ASSESSMENT 179 ORDERING THE CITY PRIOR TO THE OLYMPICS 184 SECURITY IN THE URBAN DOMAIN 188 THE UNDEMOCRATIC NATURE OF SECURITY PLANNING 196 THE NORMALIZATION OF SECURITY? 203 PLANNING IN THE AFTERMATH OF OLYMPIC SECURITY 206 EXCEPTIONAL SECURITY 209 CONCLUSION: SHAPING CITIES THROUGH SECURITY 211 REFLECTIONS ON CITIES, SECURITY, AND RESEARCH 220 BIBLIOGRAPHY 224 APPENDIX A 254 SAMPLE INTERVIEW QUESTIONS 254 COPYRIGHT ACKNOWLEDGEMENTS 255 vii List of Tables 1 Framework for the analysis of data 17 3.1 Summary of seven complaints, including rulings and recommendatiOns frOm the APEC Commission 158 List of Figures 2.1 PhotOs Of FLQ bombings 72 2.2 The military presence during the OctOber Crisis 86 3.1 Explaining the “Red ZOne” security 126 3.2 Security perimeter during the AELM and key spaces on UBC campus 147 3.3 A clash between prOtesters and pOlice during the AELM 147 3.4 VPD bike patrOl reinfOrced by

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