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Approaching Border Security from a Complexity Theory and Systems Perspective

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Approaching Border Security from a Complexity Theory and Systems Perspective View metadata, citation and similar papers at core.ac.uk brought to you by CORE provided by Calhoun, Institutional Archive of the Naval Postgraduate School Calhoun: The NPS Institutional Archive Theses and Dissertations Thesis Collection 2012-12 Border cracks: approaching border security from a complexity theory and systems perspective Schwan, Michael J. Monterey, California. Naval Postgraduate School http://hdl.handle.net/10945/27901 NAVAL POSTGRADUATE SCHOOL MONTEREY, CALIFORNIA THESIS BORDER CRACKS: APPROACHING BORDER SECURITY FROM A COMPLEXITY THEORY AND SYSTEMS PERSPECTIVE by Michael J. Schwan December 2012 Thesis Advisor: Rodrigo Nieto-Gomez Second Reader: Harold A. Trinkunas Approved for public release; distribution is unlimited Reissued 21 Mar 2013 to correct advisor’s name on cover page. THIS PAGE INTENTIONALLY LEFT BLANK REPORT DOCUMENTATION PAGE Form Approved OMB No. 0704–0188 Public reporting burden for this collection of information is estimated to average 1 hour per response, including the time for reviewing instruction, searching existing data sources, gathering and maintaining the data needed, and completing and reviewing the collection of information. Send comments regarding this burden estimate or any other aspect of this collection of information, including suggestions for reducing this burden, to Washington headquarters Services, Directorate for Information Operations and Reports, 1215 Jefferson Davis Highway, Suite 1204, Arlington, VA 22202–4302, and to the Office of Management and Budget, Paperwork Reduction Project (0704–0188) Washington DC 20503. 1. AGENCY USE ONLY (Leave blank) 2. REPORT DATE 3. REPORT TYPE AND DATES COVERED December 2012 Master’s Thesis 4. TITLE AND SUBTITLE 5. FUNDING NUMBERS BORDER CRACKS: APPROACHING BORDER SECURITY FROM A COMPLEXITY THEORY AND SYSTEMS PERSPECTIVE 6. AUTHOR(S) Michael J. Schwan 7. PERFORMING ORGANIZATION NAME(S) AND ADDRESS(ES) 8. PERFORMING ORGANIZATION Naval Postgraduate School REPORT NUMBER Monterey, CA 93943–5000 9. SPONSORING /MONITORING AGENCY NAME(S) AND ADDRESS(ES) 10. SPONSORING/MONITORING N/A AGENCY REPORT NUMBER 11. SUPPLEMENTARY NOTES The views expressed in this thesis are those of the author and do not reflect the official policy or position of the Department of Defense or the U.S. Government. IRB Protocol number ____N/A____. 12a. DISTRIBUTION / AVAILABILITY STATEMENT 12b. DISTRIBUTION CODE Approved for public release; distribution is unlimited 13. ABSTRACT (maximum 200 words) Presently, U.S. border security endeavors are compartmentalized, fragmented, and poorly coordinated. Moreover, international collaborations are extremely limited; success hinges on effective international cooperation. This thesis addresses U.S. border security management using complexity theory and a systems approach, incorporating both borders and all associated border security institutions simultaneously. Border security research has rarely viewed all stakeholders as a holistic unit up to this point, nor has border security been thoroughly examined using a systems approach. This research scrutinizes the current U.S. border security paradigm in an attempt to determine the systemic reasons why the system is ineffective in securing U.S. borders. Additionally, the research investigates the current level of international cooperation between the United States, Canada, and Mexico. This thesis increases awareness and will possibly create dissent among established agencies, which is the first step in instituting needed changes that will ultimately increase North American security. The thesis contends that the establishment of a tri-national—United States, Canadian, and Mexican—border security agency, in addition to legalizing drugs and reestablishing a guest worker program, will be more effective and cost-efficient in securing North American borders. 14. SUBJECT TERMS Border Security, Complexity Theory, Systems Theory, Organizational Design 15. NUMBER OF Theory, Complex Adaptive Systems, Leverage Points, Strategy Formulation, Collaborative Planning, PAGES Cynefin Framework, Wicked Problems, Bureaucracy, Adhocracy, Guest Worker Program, Drug 153 Legalization 16. PRICE CODE 17. SECURITY 18. SECURITY 19. SECURITY 20. LIMITATION OF CLASSIFICATION OF CLASSIFICATION OF THIS CLASSIFICATION OF ABSTRACT REPORT PAGE ABSTRACT Unclassified Unclassified Unclassified UU NSN 7540–01–280–5500 Standard Form 298 (Rev. 2–89) Prescribed by ANSI Std. 239–18 i THIS PAGE INTENTIONALLY LEFT BLANK ii Approved for public release; distribution is unlimited BORDER CRACKS: APPROACHING BORDER SECURITY FROM A COMPLEXITY THEORY AND SYSTEMS PERSPECTIVE Michael J. Schwan Major, United States Air Force B.S., University of North Dakota, 1998 M.S.A., Central Michigan University, 2007 Submitted in partial fulfillment of the requirements for the degree of MASTER OF ARTS IN SECURITY STUDIES (HOMELAND SECURITY AND DEFENSE) from the NAVAL POSTGRADUATE SCHOOL December 2012 Author: Michael J. Schwan Approved by: Rodrigo Nieto-Gomez Thesis Advisor Harold A. Trinkunas Second Reader Harold A. Trinkunas Chair, Department of National Security Affairs iii THIS PAGE INTENTIONALLY LEFT BLANK iv ABSTRACT Presently, U.S. border security endeavors are compartmentalized, fragmented, and poorly coordinated. Moreover, international collaborations are extremely limited; success hinges on effective international cooperation. This thesis addresses U.S. border security management using complexity theory and a systems approach, incorporating both borders and all associated border security institutions simultaneously. Border security research has rarely viewed all stakeholders as a holistic unit up to this point, nor has border security been thoroughly examined using a systems approach. This research scrutinizes the current U.S. border security paradigm in an attempt to determine the systemic reasons why the system is ineffective in securing U.S. borders. Additionally, the research investigates the current level of international cooperation between the United States, Canada, and Mexico. This thesis increases awareness and will possibly create dissent among established agencies, which is the first step in instituting needed changes that will ultimately increase North American security. The thesis contends that the establishment of a tri-national— United States, Canadian, and Mexican—border security agency, in addition to legalizing drugs and reestablishing a guest worker program, will be more effective and cost- efficient in securing North American borders. v THIS PAGE INTENTIONALLY LEFT BLANK vi TABLE OF CONTENTS I. INTRODUCTION........................................................................................................1 A. PROBLEM STATEMENT .............................................................................1 B. MAJOR RESEARCH QUESTIONS .............................................................2 C. THESIS OVERVIEW .....................................................................................2 D. IMPORTANCE ................................................................................................3 E. PROBLEMS AND HYPOTHESES ...............................................................4 F. LITERATURE REVIEW ...............................................................................6 1. Border Security Issues .........................................................................7 2. Bureaucratic Development ..................................................................9 3. Organizational Design Theory ..........................................................11 4. Governmental Bureaucratic Adaption ............................................12 5. Systems Theory, Complexity Theory, and Complex Adaptive Systems ................................................................................................13 6. Controlling CAS .................................................................................15 7. Strategy Formulation.........................................................................17 8. Collaborative Planning ......................................................................20 9. Cynefin Framework ...........................................................................22 10. Conclusion ..........................................................................................24 G. METHODS AND SOURCES .......................................................................24 II. SHAPE OF THE BORDER SECURITY SYSTEM ...............................................25 A. ELEMENTS ...................................................................................................26 1. Political................................................................................................26 a. Legislative ................................................................................27 b. Executive .................................................................................27 c. Judicial ....................................................................................27 2. Federal Agencies ................................................................................27 a. Department of Homeland Security (DHS) .............................27 b. U.S. Customs and Border Protection (CBP) ..........................28 c. U.S. Border Patrol (USBP) .....................................................28 d. Office of Field Operations (OFO) ..........................................29 e. U.S. Immigrations and Customs Enforcement (ICE) ...........29 f. U.S. Coast Guard (USCG)
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