Integrated Border Management:

Scope, Challenges and Framework for Pakistan

by
Rashid Munir Siddiqui
(2017)

1
Table of Contents

Abstract 3
Introduction: 4
Significance/Scope of Study 5
Review of Literature: 5
Research Methodology 7
Organization of the Paper: 7
Section I 7
Concept, Objectives, and Ingredients of Integrated Border Management (IBM) 7
1.Understanding Integrated Border Management: 7
1.1 Main Pillars of Integrated Border Management: 8
1.1.1.1 Intra-Service Cooperation 8
1.1.2 Inter-Agency Cooperation 8
1.1.3 International cooperation 8
1.2 Elements to Successful Integration and Coordination of Border Functions 10
1.3 Need for Integrated Border Management in Modern World 11
1.4 Integrated Border Management from Theory to Practice 12
Section-II 14
Integrated Border Management in Pakistans Perspective 14
Section-III 20
Challenges and Framework for Developing and Implementing Border Control Strategy in
Pakistan 20
Conclusion 24
Bibiliography: 25

2
Abstract
The purpose of this study is to analyse the status and scope of Integrated Border
Management (IBM) with respect to Pakistan and the institutional and legal framework available
or required for its implementation. IBM has been adopted worldwide as a holistic approach
towards border protection activities. It is meant for bringing greater efficiency and effectiveness
through coordinated policies, procedures and practices among the domestic and international
border control agencies. It aims at increasing synergies among the stakeholders involved in
border protection by reducing redundancies and overlappings at institutional, infrastructural and
human resource level. It provides a multidimensional solution to the border security mechanism
of a country for facilitating trade and travel without compromising the legal and regulatory
requirements. Although no universal model for IBM is available, yet there are certain success
stories related to its adoption and implementation. However, on ground, every country needs to
define its parameters, structure and implementation strategies according to its body politic as
well as specific geographical, political and socio-economic realities. The study is relevant in
context of Pakistans peculiar geographic location characterized by a long unmanned coastal belt
and porous borders consisting of hilly terrains, deserts and rough trails, shared with India, Iran,
China and Afghanistan, which make an integrated border security solution imperative. It is also
important in the wake of on-going war on terror as well as new dimension of trans-national
crime like human trafficking, money-laundering, violation of intellectual property rights,
biodiversity, illegal transport of arms & ammunition, smuggling of precursors and psychotropic
substances, illicit transfer of technology and cybercrime. This paper provides a fair picture
regarding the viability of IBM for Pakistan to control smuggling and cross-border crimes and the
analysis of different challenges which may come in way of its development and implementation.
The issues related to available infrastructure and legal framework have also been discussed.

3
Introduction:
In the present Cyber Age, the Internet or social media, modern international trends such
as renunciation of war, disarmament, peaceful settlement of disputes and promotion of economic
development have rapidly changed the pattern of the world which has, in fact, converted into the
global village, as dreamed by us in the remote past. Taking cognizance of the fast interaction of
the nations, countries and their people of various fields, it is generally said that borders are in
flight. Despite it, a mechanism at the border to control criminal elements is need of the hour.

Notably, World Customs Organization (WCO) has dedicated 2017 to promote the use of
data analysis under the slogan Data Analysis for Effective Border Management. In this respect,
Integrated Border Management (IBM) or, in World Customs Organisations (WCO) terminology
1
, Coordinated Border Management (CBM), which is nowadays a commonly understood and
widely accepted concept among the border control agencies and provides the keyword for
innumerable reform projects around the world, had little currency until the mid-1990s. There
may be a difference of opinion on its interpretation and implementation according to
geographical, economic and political realities of different states. But, there is a consensus on its
basic principles which require that border procedures in every state should be governed by
2
modern monitoring and surveillance strategies rather than slow bureaucratic structures.

1
Aniszweski, Stephen (2009), Coordinated Border Management: A Concept Paper, Directorate of Compliance
and Facilitation, World Customs Organisation, Brusels, Belgium.
2
Hobbing, Peter. (2005) Integrated Border Management at the EU Level. CEPS Working Documents No. 227, 1
August 2005.
4
 In simple words, IBM may be defined as national and international coordination and
cooperation among all the relevant. Authorities and agencies involved in border security and
trade facilitation to establish effective and efficient border management systems in order to reach
3
the objective of open, but well controlled and secure borders.

In this regard, IBM will provides a pro-active solution for addressing all these issues
through establishing a closer coordination between all the departments and agencies working for
border protection in the country and developing liaison with border control agencies across the
border. This would result in effective and efficient use of financial as well as human resources
and bring harmony and standardization of procedures and practices.

This approach is relevant in the context of emergence of regional trade blocks and
economic cooperation platforms around the world. IBM effectively addresses the cross-border
flows of illegal weapons, illicit drugs, narcotics, psychotropic substances and precursors as well
as violations related to money laundering, intellectual property rights, sanitary & phytosanitory
considerations and biodiversity. The philosophy behind the emergence of concept of IBM is to
develop synergies among the border controlling agencies, both domestic and international, at one
end and bring the states closer for better trade and travelers flows, while maintaining a balance
with international compliance requirements.

In practical terms, IBM involves a number of governmental and non-governmental actors

joining hands for a common goal of safe and secure border through coherent application of laws
and procedures.

Significance/Scope of Study

This study is relevant in the context of changing environment in border control strategies
all over the world. In view of the emerging roles of border controlling authorities related to a
diversity of functions in the import/export of goods, clearance of baggage and passengers as well
as new dimension of trans-national crimes like human trafficking, money-laundering, violation
of intellectual property rights, biodiversity, illegal transport of arms & ammunition, smuggling of
precursors and psychotropic substances, illicit transfer of technology and cybercrime, it is
imperative to analyse the existing set-up of border controlling agencies and the level of

3
Guidelines for Integrated Border Management in Western Balkans (2007), OSCE Secretariat,
5
coordination and cooperation available among these agencies. Another significance of this study
is the detailed discussion on legal, procedural and infrastructural framework for implementing
IBM in Pakistan so that the future border controlling strategy adopted by Pakistan can achieve
the targets of effectiveness, efficiency and trade facilitation.

Review of Literature:

A review of available literature on Integrated Border Management (IBM) was carried out
encompassing library and on-line sources. In this connection, along with the reference books and
journals on research techniques, annual reports, published by World Customs Organization
(WCO), UNODC, INCB, Anti-Narcotics Force (ANF), Ministry of Narcotics Control, Federal
Investigation Agency (FIA), Pakistan, and other relevant national and international agencies
were consulted. Articles, research papers and various-related reports focusing on the concept of
Integrated Border Management (IBM) were also reviewed.

As IBM is comparatively a new concept, it was necessary to review as to how the term
originated and in what way the concept evolved from theory to practice. World Customs
Organisations journals and annual reviews give much detail of the evolution of this concept.
Similarly, the Resolutions passed in connection with the implementation of International
Convention on the Simplification and Harmonization of Customs Procedures (commonly known
as the revised Kyoto Convention), and the SAFE Framework of Standards to Secure and
Facilitate Global Trade (the SAFE Framework) of 1974 also provide insight in the importance of
this concept. These documents narrate the procedures and modalities to be adopted for better
coordination and cooperation between border security authorities for better control and
facilitation of trade and travel. Similarly, Guidelines for Integrated Border Management in the
4
Western Balkans(2004) issued by European Commision , Strategic Deliberations on Integrated
5
Border Management issued by the Council of European Union (2006) , Research Papers by Dr.
6 7 8
Peter Hobbing , Mariya Polner and Stephen Aniszweski on theory and practice of coordinated

4
Guidelines for Integrated Border Management in the Western Balkans(2004), European Commision, Brussels
5
Integrated Border Management: Strategic Delibeations (2006), Council of European Union, Brussels
6
Hobbing, Peter Dr. (2005), Integrated Border Management at the EU level CPEC Working Document, Center for
European Policy Studies (2005), Brussels, Belgium.
7
Polner, Mariya (2008), Coordinated Border Management: From Theory to Practice, WCO Journal Vol 5:
Number 2, World Customs Organisation, Brusels, Belgium
8
Aniszweski, Stephen (2009) Coordinated Border Management-A Concept Paper, World Customs Organisation,
Brussels, Belgium
6
border management as envisioned by World Customs Organisation (WCO) provide some
practical details of IBMs concept and give an insight into steps involved in practical
implementation of IBM. According to these studies, IBM includes three major phases viz intra
services coordination, inter-services coordination and international cooperation. In Pakistans
particular context, no detailed study is available, however, there are articles and reports which
highlight its importance for Pakistan and enlighten strategies for its implementation. Ehsan
Mehmood Khans article on Integrated Border Management in relation to Pakistan and
Afghanisan is a revealing study which provides an in-depth strategy for introducing IBM in
Pakistan both at domestic and bilateral level. Federal Investigation Agency (FIA) of Pakistan has
taken some practical steps in implementing the concept of IBM at a limited level. The
information available on Agencys website is a good source to understand the mechanism of
implementation of IBM in Pakistani perspective. Similarly, some information has also been
obtained through the official documents of Directorate General of Reforms and Automation,
Custom House, Karachi which mainly throws light on different modules, interfaces and software
for data sharing and risk management system within Customs operational units as well as
between Pakistan and Afghan Customs.

Research Methodology
During the course of research, both primary and secondary sources of data were
employed. Structured interviews with individual stake-holders, office bearers of relevant public
as well as private sector organisations and focus groups were conducted. Besides, secondary data
has also been obtained from various sources viz research journals, articles, annual Reports of
United Nations Office on Drugs and Crime (UNODC), World Customs Organisation (WCO),
Organisation on Security and Cooperation in Europe (OSCE) and Center for European Policy
Studies. In addition to that, research reports, published by the Directorate General of Training and
Research (Customs), Karachi were also consulted. Policy papers by Pakistan Customs, Federal
Investigation Authority (FIA) and Anti Narcotics Force (ANF), Pakistan were also perused. Data
from the website of the United Nations, United States Customs and Border Protection
(Department of Homeland Security), Canada Border Security Agency (CBSA), New Zealand
Customs Service and other international agencies websites.

Organization of the Paper:

7
 This research paper has been divided into three sections: Section-I deals with the main
concept, objectives, and ingredients of Integrated Border Management. It also covers the need
for IBM in modern world. Section-II deals with Integrated Border Management in Pakistans
Perspective. It discusses the existing set-up of different border control organisations in Pakistan
and analyses the scope and need of IBM in Pakistan. Section-III discusses the challenges and
framework for developing and implementing IBM in Pakistan.

Section I

Concept, Objectives, and Ingredients of Integrated Border

Management (IBM)
1. Understanding Integrated Border Management:
In order to understand the practical and strategic importance of IBM, it is imperative to
know its basic pillars, objectives and different models.

1.1 Main Pillars of Integrated Border Management:

There are three main ingredients of IBM namely Intra-Service Cooperation, Inter-Agency
Cooperation and International Cooperation.

1.1.1.1 Intra-Service Cooperation:

It refers to the operational integration among the various units/departments working

within one agency. This requires the introduction of well-defined and coherent procedures,
controls and evaluation mechanisms applicable to all units working within the agency. It also
includes the clearly-formulated legal and regulatory framework, decision-making competencies
and data sharing channels. A legislative cover is normally required to ensure such coordination.

1.1.2 Inter-Agency Cooperation:

It refers to the coordination among all the domestic agencies, assigned with different
tasks related to border control. This is central to IBM so at to ensure that there are no loopholes
or operational over-lapping in these agencies. This synchronization can be brought through
proper legal and legislative means and it involves cooperation among these agencies, without
impacting their respective jurisdictions, to exchange relevant information and documents, to

8
ensure joint use of available equipments, to coordinate their joint activities and to organise and
co-finance common capacity building and training programs.

1.1.3 International cooperation:

It involves cooperation between the border security agencies of the neighboring

countries. It can be secured through bilateral, regional and global initiatives in the fields of
information exchange, joint operations and coordinated actions for institutional, infrastructural
and human resource development. In Pakistans case, such cooperation can ideally be established
with immediate neighbours India, Iran, Afghanistan and China or at regional levels through
South Asian Association of Regional Cooperation (SAARC) (with India, Sri Lanka, Bangladesh,
Nepal, Maldives and Bhutan) or Economic Cooperation Organisatin (ECO) (With Afghanistan,
Iran and Central Asian Republics).

All these steps would eliminate contradictions and redundancies between different
operations and policies and would result in more effective service delivery, less duplication,
cost-savings through economies of scale by enhancing risk management with fewer, but better
targeted interventions, cheaper transport costs, less waiting times, lower infrastructure
improvement costs, wider sharing of information and intelligence, and strengthened connectivity
9
between all border stakeholders. Service delivery and controls will also be more effective
through IBM which can never be possible through effort of an individual agency, department or
ministry.

Another perspective of IBM is also the involvement of private sector and the trade bodies
across the border which may facilitate in development of infrastructure. Development of IRPs
with shipping lines, freight and forwarding agencies and port authorities can greatly facilitate in
information sharing and effective enforcement strategies. In addition to that, a holistic approach
in fields of law-making, information sharing, human resource development and ICT
developments will not only bring economy through efficient utilization of resources, but can also
help in combating organized crimes and similar other threats. It is, therefore, necessary to
develop coordination and cooperation at all these levels in the following areas as shown in Fig 1:

9
World Customs Organization dedicates 2015 to Coordinated Border Management Press release by WCO
Secretariat, 26 January 2015.

9
 Legal and Regulatory Framework
Institutional Framework
Procedures
Human Resources and Training
Communication and Information Exchange
Infrastructure and Equipment

Fig 1:

1.2 Elements to Successful Integration and Coordination of Border Functions:

There are certain pre-requisites for introducing and implementing Integrated Border
Management. As this is a new concept, it may incur some resistance in all organisations working
on orthodox pattern and with a degree of working independence within their functional
jurisdiction and authority. It is, however, necessary that this concept which is at its very onset, is
introduced with proper political will at the top level. As IBM engages a number of different
departments as well as agencies which are to be brought into a net of coordinated activities,
therefore, it is mandatory that the political leadership should back up such plan so that necessary
legislation, if required, may also be introduced.

In this respect, an assertive political leadership and backing is also imperative in wake of
the fact that international cooperation would also be required for obtaining true benefits of IBM
through inter-services coordination among border security agencies across the border.

10
 Second most important factor is the cooperation among different domestic border control
agencies as well as private sector organisations. It is a fact that international trade is an activity
largely conducted by private sector businesses. Hence, private sector concerns are a key feature
in any border management reform initiative.
At the time of development of European Customs Union, private sector played a dynamic
role. They provided technical input, lobbied to push the agenda of integration forward, and
actively participated in the negotiations. Similarly, during the negotiation of NAFTA (North
Atlantic Free Trade Agreement), the major input came from the trade association and industry
organisations.
The private sector has two roles in border management, as a stakeholder and as a service
supplier. As a stakeholder, it generates a demand for reform and can help border agencies
ensure that control objectives are met. As a service supplier, it can help these agencies to
concentrate on core activities, while providing access to new skills and capabilities. Both the
roles put private companies at the heart of any integrated border management initiative. These
private sector organisations include shipping lines, their agents, freight forwarders, courier
services, bonded carriers, multi-model transporters, pre-shipment inspection authorities and
terminal operators (Just to quote a few). Similarly, cooperation of different trade related bodies,
fora and associations like chambers of commerce, trade associations of importers and exporters
of various commodities and private-public enterprises is also inevitable.

Third most important factor in implementation of IBM is the use of technology and ICTs.
Whether it is intra-services coordination or inter-services networking, the possibility of success
for IBM is maximum through development of Electronic Data Interchange (EDI) systems and
other electronic models for data sharing. Besides to that, use of technology can help in
interdiction and seizure of smuggled vehicles, scanning of passengers, baggage and cargo as
well as detection of illegal arms and ammunition concealed in specialized containers. Similarly,
advanced laboratory testing techniques may help considerably in seizures of drugs, psychotropic
substances and precursors including tampered vehicles. Modern techniques like crime mapping,
remote sensing and use of software can help in better coordination between among agencies for
controlling as well as devising strategies for cross border crimes.

11
 Another major step in this regard is the automation of procedures in all departments. But,
in order to effectively use the modern technological tools in all organizations, a highly skillful
and trained workforce is also a pre-requisite. Therefore, human resource training and capacity
building in specialized areas of knowledge and skills is also mandatory.

1.3 Need for Integrated Border Management in Modern World:

While discussing the concept and modalities for an effective system of integrated border
management, it is necessary to understand the reason de etat for this system. Some important
factors which have made IBMas an emerging reality in the modern world may be summed up as
follows:-

Change in the concept of physical border

Substantial change in trade and travel flows which demands selective risk-based
monitoring systems
Security related issues and organized crimes
Trade facilitation considerations
New considerations in border control like protection of biodiversity, intellectual property
rights, sanitary and phyto-sanitary issues, money laundering, cybercrimes, human
10
trafficking etc.

It is in view of these realities that Integrated Border Management has also been
considered a vital instrument and technique in internal conventions and protocols. It is a major
theme in World Customs Organisations (WCO) Standards for ensuring security and facilitation
in global trade. Similarly, International Convention on the Simplification and Harmonization of
Customs Procedures and the SAFE Framework of the revised Kyoto Convention which entered
into force in 1974 (revised in 1999) also focus on coordinated border management. Currently,
164 countries have signed a letter of intent committing to implement the SAFE Framework. One
of the major ingredients of the scheme introduced through this Convention is to simplify as well
as standardise customs procedures through joint controls, enhancement of international
cooperation with other customs administrations, sharing of information among the related
authorities and encorporation of techniques like risk management. The significance of concept
of IBM is evident from the fact that it was WCOs theme for international customs day in 2015.

Final Evaluation Report on Global Container Control Report (2013), United Nations Office on Drugs and Crime,
10

Vienna

12
1.4 Integrated Border Management from Theory to Practice

World Customs Organization (WCO) has dedicated 2017 to promote the use of data
analysis under the slogan Data Analysis for Effective Border Management. Data Analysis is
defined as a process of inspecting, cleansing, transforming, and modeling data with the goal of
11
discovering useful information, suggesting conclusions, and supporting decision-making .

In these terms, the concept of Integrated Border Management (IBM) has fast received the
recognition from a number of countries and regions due to the practical solution it provides for
12
border security issues. United States of America, New Zealand, Australia, Macedonia , and
countries included in European Union (EU) and Western Balkan have embarked upon the
implementation of this concept with a reasonable degree of success.

The discussion and communication related to the concept of Integrated Border

13
Management in Europe started during 1980s . The first agreement between five European
countries i.e. France, Germany, Belgium, Luxembourg, and the Netherlands to create a territory
without internal borders was signed on 14 June 1985. This became known as the Schengen
Area. it abolished checks at the internal borders of the signatory states and created a single
external border where checks are carried out in accordance with identical procedures. This
intergovernmental cooperation expanded to include nearly all 27, members of European Union
including Italy, Spain, Portugal, Greece, Austria, Denmark, Finland, Sweden, the Czech
Republic, Estonia, Latvia, Lithuania, Hungary, Malta, Poland, Slovenia, Slovakia and
Switzerland. Bulgaria, Cyprus and Romania are not yet fully-fledged members of the Schengen
area. The Key rules adopted within the Schengen framework include an overall improvement in
cooperation and coordination between the police and the judicial authorities of the member states
through removal of checks on persons at the internal borders; a common set of rules applying to
people crossing the external borders of the EU member states; harmonisation of the conditions of
entry and of the rules on visas for short stays; enhanced police cooperation (Including rights of

11
Bihani ,P. and S. T. PatiInternational (2014) in A Comparative Study of Data Analysis Techniques, Journal of
Emerging Trends & Technology in Computer Science (IJETTCS) Volume 3, Issue 2, March April 2014; Web
Site: www.ijettcs.org Email: editor@ijettcs.org
12
National Integrated Border ManagementDevelopment Strategy 2015 2019 (September 2014), SKOPJE,
Macedonian National Integrated Border Management and Coordination Centre, Macedonia.
13
Polner, Mariya (2008), Coordinate Border Management- from theory to practiceWCO Journal Vol 5: Number 2,
World Customs Organisation, Brusels, Belgium
13
cross-border surveillance and hot pursuit); stronger judicial cooperation through a faster
extradition system and transfer of enforcement of criminal judgments and above all
establishment and development of the Schengen Information System (SIS) which is a
sophisticated database used by authorities of the Schengen member countries to exchange data
14
on certain categories of people and goods.

Similarly, the UK merged its customs and inland operations in 2008 and crafted an
executive agency, the UKBA, solely to handle border related-issues.

The experience of United States of America is also relevant in this regard. Before 2001,
border functions were divided among various federal departments, however the 9/11 events
called for consolidation of most of them under one roof. As a result, the 2002 Homeland Security
Act envisaged the creation of the Department of Homeland Security (DHS) which took over the
majority of the border functions. As a result of this merger, the functions have been divided in
various waysthe Bureau of Customs and Border Protection (CBP) acts as a front line
responder dealing with immigration, customs and agricultural compliance and thus having an
enforcement function, the Bureau of Immigration and Customs Enforcement (ICE) performs an
investigative function, the Transportation Security Administration (TSA) deals with security of
the transportation system and the US Coast Guard ensures security in the US territorial waters
within DHS.

After the terror attacks in Europe, setting aside the wringing of the EU, on February 13,
2017, the Austrian army has started building a fence of 2.2 meters high and 2.3 mile along its
border with Slovenia, the first such internal barrier erected within the passport-free travel zone.
Austria insisted the move is merely to channel refugees, rather than halt them. It follows the
erection of fences by Hungary on the border with Serbia and Bulgaria on its border with Turkey.
15
Slovenia has erected a fence on its border with Croatia ()

Likewise, Australian initiatives in implementing integrated border management among

domestic law enforcement and border control agencies are also illuminating. In December 2008,
Australian Customs changed its name to Australian Customs and Border Protection Service

14
Integrated Border Management Strategic deliberations Council of the European Union (November 2006),
Brussels.
15
Daily Telegraph February 15, 2017
14
(CBPS) and was given the leading role in border protection. CBPS manages the security of
Australias borders. It works closely with other government and international agencies in
particular with the Australian Federal Police, the Australian Quarantine and Inspection Service,
the Department of Immigration and Citizenship and the Department of Defence, to detect and
deter unlawful movement of goods and people across the border.

Border Sector Governance Group established by New Zealand is also an example of

practical implementation of IBM. This Group comprises the chief executives from the New
Zealand Customs Service, Department of Labour, Department of Internal Affairs, Ministry of
Transport, Ministry of Agriculture and Forestry and Food Safety Authority. The Border Sector
Strategy which provides framework for collaboration of border sector agencies has attempted to
ensure trade through single window, streamlined passenger facilitation with improved risk
management, robust identity assurance for all of government regarding entry and exit of persons
at the border, and better targeting capability using information across all border agencies. Having
identified common objectives and deliverables, New Zealand undertook a whole of government
approach to border management where agencies remain separate, however, work together to
achieve common goals.

Section-II

Integrated Border Management in Pakistans Perspective

Pakistan shares 7,092 kilometres border with other countries; 2,611 kilometres with
Afghanistan, 523 kilometres with China, 2,912 kilometres with India and 909 kilometres with
Iran, besides 1,046 kilometres of coastline. Amongst these, the porous and volatile border with
16
Afghanistan poses a great challenge . The border with Afghanistan is unique from many angles.
A total of 11 out of 34 Afghan provinces adjoin three federating units of Pakistan to include
17
Balochistan, Khyber-Pakhtunkhwa and Federally Administered Tribal Areas (FATA) .

There are four major sea ports in Pakistan, which actively deal with the clearance of
imports, exports and transit cargo. These are located in Karachi East, Karachi West, Port

Annual Report United Nations Office on Drugs and Crime (UNODC) (2014), Vienna, Austria.
16

Ehsan Mehmood Khan (2014), Border Management The Case of Pakistan and Afghanistan Border Monthly
17

Hilal (July 2014)

15
Muhammad bin Qasim and Gawadar. Approximately 5,000 containers are processed through
18
these ports per day. At the same time, there are 12 dry ports in the country providing services
19
including quick clearance, warehousing and bonded transportation. The government intends to
further expand this network of dry ports to cities such as Sargodha, Sukkur, Larkana and
Noshera. There are 11 international airports in Pakistan. Jinnah International Airport in Karachi
is the largest airport in the country and handles six million passengers annually. Other major
airports for international and domestic traffic are at Lahore, Islamabad, Peshawar, Multan,
Faisalabad, Sialkot and Quetta. In addition, there are smaller airports in Rahim Yar Khan, Zhob
20
and Gawadar . In addition to that there is one Land Freight Unit (LFU) at Wagha border
between India and Pakistan, providing land and rail access between the two countries.

Apart from that, there are about 100 frequented and unfrequented routes between
21
Afghanistan and Pakistan.

Pakistan Customs, working under FBR, is mainly responsible for import permissions,
clearance and regulation of all imports, exports and transit effected through seaports, dry ports
and airports all around the country. Besides collection of revenue, Pakistan Customs is the
premier agency to perform anti-smuggling and border management activities through its field
offices, border check posts and an extensive set-up of Intelligence and Investigation Directorates.
Pakistan Customs has established checkposts at points shown in Table 1 for controlling
cross-border as well as inland flow of smuggled goods. Nevertheless, there are other agencies
which work in their respective jurisdiction, though overlapping in certain cases for border
security and prevention of smuggling. These agencies include Rangers, Coast Guards, Frontier
Constabulary (FC), Anti Narcotic Force (ANF), Provincial Police, Levies and Excise
Department.

Table 1: Border and Inland Check Points:

Province City Check Post Location

Punjab Lahore Gujranwala (Customs Intelligence)

18
www.shipmagz.com
19
Drugs and Precursors Controlling Techniques: Gap Analysis and Need Assessment for Pakistan Customs
(2014), Directorate General of Training and Research, Karachi.

Civil Aviation Authority(CAA) of Pakistan, 2015.

20

Ehsan Mehmood Khan (2014), Border Management The Case of Pakistan and Afghanistan Border Monthly
21

Hilal (July 2014)

16
 Sialkot Gujranwala (MCC, Sialkot)
Faisalabad Jhang City
Sargodha
Mianwali
Sara-i-Muhajir (Jhang)
Khushab
Multan Sadiqabad
D.G.khan
Islamabad Attock
Khyber Pakhtunkhaw Peshawar and Torkham (Pak-Afghan Border)
Tribal Kohat Tunnel (Kohat)
Agencies Rahim Khan Khushal Garh (Kohat)
Darra Tang (Laki Marwat)
Rammaq (Dera Ismail Khan)
Chashma (Dera Ismail Khan)
Dera Ismail Khan-Darya Khan Bridge
Ghulam Khan(North Waziristan)
Tank (South Waziristan)
Abbotabad
Sher Garh (Mardan)
Arandu (Chitral)
Shab Qadar (Charsaddah)
Terimangal (Khyber Agency)
Kharlachi (Khyber Agency)
Barki (Khyber Agency)
Shaheedano Dand(Kurram Agency)
Balochistan Quetta Galangur
Baleli
Lakpass
Nokandi
Chaman
Taftan
Shela Bagh
Gawadar Gawadar
Pasni
Jiwani,
Ormara
Awaran
Turbat
2500
Chowk Bela
Chowk Sunstar
Sind Karachi Karachi Fish Harbor
Korangi Fish Harbor
Ibrahim Haidery (Near Korangi Creek)
Chowk Mochko(Near Hub on
Karachi-Baluchistan Road)

17
 Chowk Ghaggar Phatak (at National
Highway Near Thatta)
Superhighway near Malir
CP Guardian (Floating Checkpost inside Sea
at 20 Nautical Miles near Karachi Port)
Sukkar Sukkar City outskirts
Jacobabad Jacobabad City

Pakistan is committed to tackle the problem of terrorism. Hence, the effective border
management between the Pak-Afghan border becomes imperative to control all the
terrorism-related infiltrations, drug smuggling etc. Moreover, effective border management will
also facilitate both countries to come out of blame game, as it would offer a strict check on both
sides to counter the free movement of terrorists and drug mafia lords, who are the important
factors of deteriorating security situation in Afghanistan and its obvious backlash on Pakistan.
The porous border between Pakistan and Afghanistan is frequently used by human and drug
traffickers, criminals and terrorists. Their easy access through unguarded porous border provides
opportunity to miscreants to cause havoc inside Pakistan and Afghanistan. For effective counter
terrorism measures strong border, control management is vital at Pak-Afghan border. Taking
note of the anti-Pakistan intruders, Pakistans army had decided to build a fence along the
border, and to control the border crossings. The strategic project of 1,100-kilometre-long trench
with the cost of Rs14 billion which was initiated along Pak-Afghan border in Balochistan by
Frontier Corps in 2013 has been completed this year. In the next phase, the project will be
22
extended to the entire long border with Afghanistan which had opposed this plan . Balochistan
Blasts and the Issue of Pak-Afghan Border, www.veteranstoday.com Dated: November 15,
2016). Pakistans desire to fence the border is reflective of Pakistans willingness to stand by the
23
commitment for peace and not to allow its territory to be used for terrorism in Afghanistan .

Nonetheless, in addition to legitimate entry and exit of huge quantum of legitimate trade
and travelling through all these notified official sea, land and air routes, there is an enormous
quantum of illegal trade and smuggling though border crossing points in Khyber Pakhtunkhwa
and Balochistan along borders of Iran and Afghanistan which are inaccessible for Pakistan

Shaukat,S. in Need for Effective Management Mechanism at Pak-Afghan Border, www.kashmirwatch.com,

22

January 26, 2016.

23
Sultan,S.M, and M Hali(2016), Great Game in the Region; Pakistan Observer, June 10, 2016.

18
Customs and other border control agencies due to rough terrain and inaccessible location and are
the most likely points for smuggling of goods (Table 2). One of the gravest threats along the
Pakistan-Afghanistan border is from the movement of drug traffickers. Whereas Pakistan is a
poppy-free country since long, narcotics virtually make up for 50 percent of Afghanistan's GDP
according to international sources. About 2.5 million Afghans depend directly on the narcotics
production and trafficking. Approximately 94 percent of world opium production transits the
24
region, Afghanistan being the main source .

Table2: Smuggling Routes:

Province City/Location Crossing Points

Khyber Peshawar (Warsak) Charsada

Pakhtunkhaw Peshawar (Abbotabad) Barian,Jhari Khas
Kohistan/Bhisham
Peshawar (Noshera) Noshera
Peshawar (Chitral) Boroghal
Dorah
Peshawar Barsa (Kaka sahib Road),Shilmen
(Khyber Agency) Tinha,Bara,Tirah valley,Mala Gauri,
Peshawar Piewar
(Kurram Agency)
Peshawar (Hangu) Hangu
Tall
Peshawar Angor Adda,Gomal
(South Waziristan Agency)
Balochistan Chaghai Kachao, Maskhail, Taalab, Ghani
Laudi,Yekmach,Koh-i-Sultan
Quetta Kanale
Muriband
Noshki Shekhwasil
Noshki Gaon
Turbat/Kech Mand, Buleda
Ziarat Katchi
Gawadar (Pasni) Shadikur
Gawadar Liari Coastal High Way
Kalmat, Bella
Gawadar Sakaran, Bundawari
(Hub) Bandmurad,Somani Bay

Ehsan Mehmood Khan (2014), Border Management The Case of Pakistan and Afghanistan Border Monthly
24

Hilal (July 2014)

19
 Although Pakistan Customs is the premier border control agency due to its official
presence and established set up at all sea, land and air routes, yet there are a number of border
25
control agencies working in different areas of functional jurisdiction (Table 3).

order Control Agencies of Pakistan at different international and inland Exit

Table 3: B
and Entry Points
Type of Exit/Entry Point Agencies
Airports Pakistan Customs, ANF, ASF, IB, FIA
Wharfs Pakistan Customs, ANF, Provincial Excise
Check posts Pakistan Customs, FC, Police, Levies
Dry ports Pakistan Customs, ANF
Coastal area units Pakistan Customs, ANF, Coast Guards, PMSA
Border customs units Pakistan Customs, ANF, FC, Political Administration

However, all these security agencies, organizations and departments such as Anti
Narcotics Force (ANF), Frontier Constabulary (FC), Pakistan Coast Guard (PCG), Pakistan
Maritime Security Agency (PMSA), Federal Investigation Agency (FIA), Airport Security Force
(ASF), Federal Investigation Agency (FIA), Sanitary and Phytosanitry (SPS) Agriculture,
Veterinary, Health, Quarantine, Environmental Protection, Federal Board of Revenue (FBR) etc.,
including international organization are playing a key role in relation to the IBM. Although these
agencies and departments work in their domains, yet they cooperate with one other on lesser
scale or the greater scale.

In this connection, purpose of introducing IBM is to develop an operational set up where

all these departments and agencies work in coherence and coordination without overlapping of
resources and procedures.

In addition to that, linkages with the main data base authority of the country i.e. National
Database and Registeration Authority (NADRA) is also required, while Pakistan Customs can
take the lead role in this regard and all the other agencies work in coordination and collaboration
with it for a unified border control mechanism. At the same time, arrangement for developing
coordination, data sharing and joint operations can be initiated with border security agencies

25
Drugs and Precursors Controlling Techniques: Gap Analysis and Need Assessment for Pakistan Customs
(2014), Directorate General of Training and Research, Karachi.

20
across the border. Currently, Pakistan Customs has developed Electronic Data Interchange (EDI)
26
with Afghanistan for Transit trade. Although there is no such arrangement with India, Iran or
China, the negotiation process with India by formulating Customs Border Liaison Committee
(CBLC) has been started. This Committee meets every three months alternately in India and
Pakistan to resolve disputes and improve working relationship between border control agencies
27
of both countries.

Section-III
Challenges and Framework for Developing and Implementing Border Control
Strategy in Pakistan

First and foremost requirement of IBM is the Intra-service Coordination and Cooperation.
For this purpose, Pakistan Customs needs to harmonise its operational units working for
controlling smuggling and illicit trade. These include the Directorate General of Intelligence and
Investigation (DG I&I), Model Customs Collectorates (MCCs) and Directorate General of IPR.
Currently, there is a single system for assessment and examination under the title WeBOC which
is running at all MCCs, but there is no operational unity among the field units working for
control of smuggling. It would be a great challenge to develop a system of unified information
sharing and generating alerts through System Based Risk Management System and a unified
command and control system for operational movement of the staff and contingency plans.

Second pillar of IBM is the Inter-Services Coordination and Cooperation among all the
border control agencies. This requires a unified legal and regulatory framework, integration of
procedures, common channels of communication and information exchange, coordinated use of
infrastructure and equipments and above all human resource training and capacity building. A
big challenge for this step of implementation is the political will so as to formulate procedures
and processes for a coordinated activity and introduction of a centeralised command and control
system, and proper legal framework. This integration would also need uniform systems for data
sharing as well as the automation of procedures in all departments. But, in order to effectively

26
Interview with Deputy Director(HQ), Transit Trade, Custom House, Karachi
27
Personal Interview with Additional Collector (customs), Land Border Station, Wahga, Lahore
21
use the modern technological tools in all organization, a highly skillful and trained workforce is
also a pre-requisite which is a big challenge.

It is also a ground reality that in Pakistan certain border control agencies like FC, Coast
Guards, ASF, Rangers, PMSA and ANF are under the military control and they work in their
exclusive jurisdictions under their respective specialized commands. Therefore, it would be a
challenge to bring such agencies under the control of Pakistan Customs. A certain amount of
mistrust also prevails among these agencies. A workable operational solution for this dichotomy
is another challenge in the way of IBM in Pakistan. It is notable that Iranian President Hassan
Rouhani, Indian Prime Minister Narendra Modi and Afghan President Ashraf Ghani on May 23,
28
2016 signed a three-way transit agreement on Iran's southern port of Chabahar . India said it will
invest up to $500 million in a deal to develop a strategic port in Iran and both countries planned a
number of projects they say are worth hundreds of millions of dollars.

In response to the $46-billion Pak-China project of CPEC, Washington broadly supported

New Delhi and Kabul in signing a deal with Iran for a transport corridor, opening up a new route
to Afghanistan via the Iranian port of Chabahar. In this context, during his visit to Tehran, on
May 23, 2016, the Indian Prime Minister Narendra Modi signed 12 agreements with Tehran,
including a deal to develop Irans Chabahar port. India will spend $500 million on the project,
with a plan to invest an additional $ 16 billion in the Chabahar free trade zone.
Chabaharlocated about 1,800 kilometres south of Tehranis more than just a port with an
adjoining free trade zone. But, CPEC is much bigger and viable project than Chahbahar, if
Pakistan develops the project with speed, efficiency and transparency, it needs not be worried
about Chabahar.

Regarding the two projectsCPEC and Chahbahar, on June 7, 2016, a Chinese

newspaper, Global Times has blamed India for damaging the prospects of Gwadar by investing
in Chahbahar to isolate Pakistan; however, it will not succeed in its designs. The paper
elaborated, Pakistans Sindh Province saw a bomb attack against Chinese engineers and
small-scale protests against the China-Pakistan Economic Corridor (CPEC) recently. Meanwhile,
the Pakistani government claimed that anti-CPEC activities by foreign forces have been busted
in Baluch Province. At the Beijing Forum held in Islamabad in late May, countries including the

Daily Dawn Online, Dated: May 23, 2016

28

22
US and Japan have shown concerns over CPEC construction and even bluntly criticized the
China-Pakistan friendship. CPEC is a significant part of the Belt and Road initiative, which is
not only a domestic strategy of China to open up its central and western regions, but also
29
Pakistans domestic development plan as well as regional integration .

India entrapped Iran by making its contribution in the development of Chahbahar Port
has relieved Tehran of its stress to get Central Asian Republics (CARs) ready for transit of their
trade goods only through Chahbahar. Therefore, Iran is not only constructing railway track and
metal roads for its trade with CARs via Turkmenistan, but also taking away roads and railways
track from Afghanistan.

However, the recent India-Iran-Afghanistan agreement to develop a trade route from

Chabahar to Central Asia has been portrayed by Indian commentators as having changed the
historical Great Game for control of the connection between South and Central Asia through
Afghanistan. But, the project will remain a dream after the collapse of the inter-Afghan
negotiations and acceleration of the attacks by Taliban on the US-led NATO forces and
installations, including those of the Afghan soldiers. Afghanistan is moving to further
lawlessness.

In 2014, Pakistan and Iran reiterated their commitment to maintaining peace along their
border and agreed on new measures to strengthen border coordination and control. The
agreement was reached at the eighth round of Pakistan-Iran Bilateral Political Consultations. The
flare-up on the border was a major agenda item at the meeting which discussed different aspects
of the relationship. The two sides reviewed the border incidents and reiterated their firm resolves
to maintain a tranquil Pakistan-Iran border the outcome of the talks said.

Pakistan and Iran have on several occasions witnessed tense moments at their border,
primarily due to activities of militants and smugglers. But it was rare for Pakistani troops to have
traded fire with Iranian troops. This, according to analysts, marked escalation in the situation on
the border. The agreed measures include enhanced communication and coordination between the
relevant focal authorities on both sides and frequent exchanges and meetings of the established

29
Global Times Online, Dated: June 7, 2016
23
mechanisms, including the Joint Border Commissiontightening border control. It is rooted in
30
mistrust between the two neighbours .

Pakistan and Iran on July 27, 2016 cited the need to establish institutional mechanisms to
oversee border security in addition to fighting against the common threat posed by Daish.This
was stated in a joint statement by National Security Advisor Lt Gen Nasser Janjua and Irans
Secretary of the Supreme National Security Council Ali Shamkhani as the former concluded his
three-day trip to Tehran. They noted the need for establishing institutional mechanism to oversee
the border security, including Joint Commission, and agreed to continue further discussions, the
31
joint statement read about border security issues discussed between the two countries .

Take cognizance of the blame game of cross-border terrorism among these neighbouring
countries, as far as the third pillar of IBM i.e. international coordination among the cross-border
security agencies is concerned, the major challenge is the history of animosity and adversity
between Pakistan and two of its neighbours i.e. and Afghanistan. Iran also has a its own
reservations regarding trade relations with Pakistan due to current political changes in the region
and Pakistans tilt towards Saudi Arabia. Although Pakistan has a good deal of trade with these
neighbours and some EDIs have been developed for Pak-Afghan Transit trade, but in order to
implement IBM in true letter and spirit, an enormous amount of diplomatic initiative, activity
and strong political will is required across the borders, which is also a big challenge.

For this purpose following step-by-step strategy needs to be adopted:-

i- Introductin of harmonisation of rules and product classification system

and information technology (IT) protocols: Being members of the World
Trade Organisation (WTO), all countries follow the same classification system
up to six-digit level. Nevertheles, there is a dire need to harmonise the product
classification at eight or ten digit levels in order to accord similar treatment to
the goods across borders. In the same way, uniform customs clearance systems,
by developing intermediating IT modules is necessary. Once these basic

Daily Dawn,October 28, 2014

30
31
The Express Tribune Dated: July 2016
24
 changes necessary are made, to create enabling environment, the next steps can
be as follows:
a) Initiating joint examinations
b) Installing automated weighbridges and scanners at the borders
crossing
ii- Devising a system of Risk Management compatible with the requirements of
all countries Joint examination of cargos can be conducted in designated joint
examination zones at the national crossing points, where customs official of
both the countries can perform their respective checks on the suspected cargos
at the same time. For the other cargos, not marked for examination through
Risk Management System, there can be a system of scanners to capture the
images, and an arrangement for weighing containers/trucks at the crossing
points for subsequent analysis and tracking.

All this would happen through consistent and sincere efforts at following levels:-

Political Level: This may also be called the decision level. Success is contingent upon the
political will, exhibited by all countries. Mutual trust and belief in each other's sincerity is
imperative to bring all the politicians to the table of consensus to take and retake important
decisions. Narrowing the communication gap through frequent interactions can be of great value
in this regard. When trust at political level would be able to survive the heat of practical
situations, it would turn into people's belief in each others sincerity and seriousness. This can
happen only if the notion of bilateralism works with trust at the political level.

Planning level: The decisions taken at the political level should be evolved into a functional
border management strategy at this level through legislation and legal framework. Ministry of
Commerce, Federal Board of Revenue (FBR) and Law Division (Ministry of Law, Justice and
Human Rights) can prepare draft rules and procedures for presenting before the legislature so
that Standard Operating Procedures (SOPs) for unified working of different border control
authorities can be developed.

Operational Level: This would require that the formations and forces, deployed on the border
ensure implementation of the border management strategy steer the under command units. It

25
requires integration at three main levels i.e., processes, human resources and data sharing.
Developing of common data sharing modules/interfaces through automation can lead to a quick
start at operational level.

Execution level: This is the basic tier where staff deputed at border crossing points and
patrolling units work under the guidelines from the operational level and resolve the disputes of
ordinary level, if any, without causing delay or disruption in normal functioning. This level
would keep working appropriately if the data/information sharing mechanism is intact and the
SOPs and EDIs are in place. This level will ensure facilitation without compromising on security
issues in light of the Risk Management System.

Conclusion:

Concluding, it may be stated that in Pakistans perspective, IBM is not only advantageous
for bringing synergies and efficiency among its internal border security agencies and the related-
departments, but also a strategic requirement for minimising threats of cross-border crimes. The
modalities related to its development at domestic and international level (Starting with
cross-border neighbours) need to be worked out, because it can provide a workable solution for
all border security related issues on one hand and will enhance trade facilitation on the other. A
basic frame work for this purpose is already available in the form of automated clearance System
of Pakistan Customs (WeBOC), integrated database of National Database and Registration
Authority (NADRA) and Federal Investigation Agency (FIA) as well as well-equipped
operational units of FC, ANF, PMSA, Coast Guards and Rangers. The missing link is the
development of SOPs to remove redundancies in their functioning and improving their efficiency
by defining their jurisdictions, removing mistrust and integrating human resource for achieving a
common and exalted goal of Integrated Border Management.

Bibiliography:

1. Aniszweski, Stephen (2009), Coordinated Border Management: A Concept Paper, Directorate of

Compliance and Facilitation, World Customs Organisation, Brusels, Belgium.

2. Drugs and Precursors Controlling Techniques: Gap Analysis and Need Assessment for Pakistan
Customs (2014), Directorate General of Training and Research, Karachi.

3. Ehsan Mehmood Khan (2014), Border Management The Case of Pakistan and Afghanistan Border
Monthly Hilal (July 2014)

26
4. Final Evaluation Report on Global Container Control Report (2013), United Nations Office on Drugs and
Crime, Vienna

5. Guidelines for Integrated Border Management in Western Balkans (2007), OSCE Secretariat, Brussels,
Belgium

6. Hobbing, Peter. (2005) Integrated Border Management at the EU Level. CEPS Working Documents No.
227, 1 August 2005.

7. Information Sheet: IOM and Integrated Border Management (2016), Official Website Internal Organisation
for Migration, Geneva, Switzerland

8. Integrated Border Management: Strategic Delibeations (2006), Council of European Union, Brussels

9. Kieck, Eric. "Coordinated border management: unlocking trade opportunities through one stop border
posts." World Customs Journal 4.1 (2010): 3-13.

10. Polner, Mariya (2008), Coordinated Border Management: From Theory to Practice, WCO Journal Vol 5:
Number 2, World Customs Organisation, Brusels, Belgium.

11. World Customs Organization dedicates 2015 to Coordinated Border Management Press release by WCO
Secretariat, 26 January 2015

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