In November 2023, I published the article Transversal Threats, Collateral Conflicts, where I explored how communities in the United States perceive irregular migration as a direct threat to their security. I argued that security should not be limited to the absence of immediate dangers but should instead encompass the material conditions that allow individuals and communities to thrive. Uncontrolled migratory flows, I noted, not only disrupt this equilibrium but also undermine trust in the state’s ability to protect its sovereignty and ensure internal stability. This conceptual framework, which moves beyond a purely militaristic interpretation of security, emphasized how irregular migration impacts host communities economically, socially, and politically.

The significance of these dynamics became even more apparent following the results of the 2024 elections in the United States, which confirmed that irregular migration is among the most sensitive issues in public debate. This phenomenon is not merely a humanitarian or administrative challenge but also a national security issue, especially when linked to the operations of transnational and para-state criminal networks. A paradigmatic example of such threats is the Tren de Aragua, a criminal organization originating in Venezuela. What began as a local gang has evolved into a transnational network operating across Latin America and the United States. This issue was central to my book Evilness Cahoot, published in 2022, where I analyzed how Nicolás Maduro’s regime has leveraged the Tren de Aragua as a para-state tool. This group combines illicit activities—such as drug trafficking, extortion, and human trafficking—with a political agenda aimed at destabilizing governments across the region.

Irregular migration has been instrumental to Tren de Aragua’s expansion. The organization has infiltrated mass migration flows, establishing operational cells in host countries and exploiting weaknesses in security systems. This makes uncontrolled migration a vehicle for criminal activity, reinforcing the premise that it is a security issue requiring a comprehensive response. In this context, any border management strategy must acknowledge and address the intersections between migration, organized crime, and regional stability.

In the first part of this article, we will address the challenges of strengthening the Inter-American Treaty of Reciprocal Assistance (TIAR), in order to address cross-cutting threats in its regional context. In a world where borders are no longer mere physical barriers but points of complex interaction, this article seeks to redefine border security—not solely as an issue of territorial control but as a holistic effort that combines stability, governance, and regional development.

Transversal threats in the border context

Definition and characteristics of transversal threats

Transversal threats are challenges that transcend national borders, economic sectors, and levels of governance, simultaneously impacting national security, social cohesion, and economic stability. These threats are defined by their capacity to operate across multiple dimensions, challenging traditional state and international institutional responses. Their multidimensional and transnational nature makes them uniquely challenging, requiring a combination of national, regional, and global efforts for effective management.

In the context of irregular migration, these threats cannot be viewed as isolated phenomena or reduced to humanitarian or administrative issues. While many migrants seek better economic opportunities or flee violence in their home countries, uncontrolled flows of people also create opportunities for the infiltration of transnational criminal networks. These networks exploit vulnerabilities in the migration and security systems of host countries to expand their influence and operations, turning migration into a vector for threats beyond its social implications.

Migration pressure, when inadequately managed, directly affects perceptions of state sovereignty and endangers the stability of host communities. The overflow of border and administrative systems generates economic, social, and political tensions, which are easily exploited by actors seeking to destabilize governments through illicit activities such as drug trafficking and human trafficking or by establishing political influence networks.

The case of Tren de Aragua

A notable example of these transversal threats is the Tren de Aragua, a criminal organization originating in Venezuela that has evolved from a local gang into a transnational network with operations across several Latin American countries and, more recently, the United States. This organization engages in illicit activities such as extortion, drug trafficking, kidnapping, and human trafficking, while maintaining direct ties to Nicolás Maduro’s regime, making it a para-state threat.

The Tren de Aragua exemplifies how criminal networks can leverage mass migratory flows to expand their operations. From its base in Venezuela, the organization has exploited the migration crisis to infiltrate host communities in countries such as Colombia, Peru, Brazil, Chile, and Ecuador. Its modus operandi includes integrating migrants into its criminal structure, facilitating the movement of human and material resources across borders. The Tren de Aragua's ability to adapt to various political and legal environments has been key to its expansion. In countries with weak state control, the organization establishes itself with relative ease, while in stricter contexts, it employs more sophisticated methods to operate clandestinely.

What sets the Tren de Aragua apart from other criminal organizations is its symbiotic relationship with the Venezuelan regime. This connection provides it with a level of protection and resources, enabling it to act as an extension of the state, using illicit activities to fund destabilizing operations in other countries. For example, cells linked to the Tren de Aragua have been documented participating in violent protests in countries like Colombia and Chile, aiming to exacerbate internal conflicts and weaken democratic governments.

Irregular migration as a security problem

Irregular migration becomes a security problem when its scale and characteristics overwhelm institutional capacity to manage it, creating vulnerabilities that affect both host communities and national control systems. This relationship between migration and security does not imply criminalizing migrants but recognizing the dynamics that arise from uncontrolled flows, such as the infiltration of transnational criminal networks, labor and sexual exploitation, human and goods smuggling, and the overloading of essential public services.

The presence of malicious actors exploiting ineffective controls to operate within migration flows is a documented reality. Organizations like the Tren de Aragua have used mass displacements as cover to infiltrate operatives across multiple countries, from Venezuela to the United States. These networks not only engage in illicit activities but also erode social cohesion and undermine perceptions of security within host communities.

Additionally, irregular migration affects security from a structural perspective. The massive arrival of people into regions with limited resources can generate social tensions, inter-community conflicts, and the collapse of critical infrastructure. These dynamics, though not always intentional, create environments conducive to radicalization, the strengthening of xenophobic narratives, and political polarization—all of which exacerbate social instability.

Thus, strategic guidelines that recognize irregular migration as a security problem are neither overreactions nor disproportionate responses. Instead, they represent pragmatic necessities in addressing the complexities of this phenomenon. Ignoring this dimension would be a dangerous omission for states and the communities directly impacted by these effects.

Irregular migration as a vehicle for threats

Irregular migration acts as a vehicle for transversal threats by facilitating the mobility of criminal actors and the creation of illicit networks in host countries. Uncontrolled migration not only presents logistical challenges for security systems but also poses significant risks to the social and economic stability of host communities. One major vulnerability associated with irregular migration is the lack of capacity to adequately identify individuals crossing borders. Migration control systems in many countries are designed to manage limited flows of people, and when overwhelmed, their ability to conduct thorough screenings is compromised. This creates gaps that can be exploited by criminal actors, who use migration as a cover to infiltrate their operatives.

For the Tren de Aragua, this strategy has been particularly effective. The organization has used Venezuelan migration flows as a means to establish operational cells in neighboring countries, where it has expanded its illicit activities and consolidated its influence. In Colombia, for instance, authorities have identified an increasing presence of Tren de Aragua members in border cities like Cúcuta, where the organization controls parts of the illegal trade and actively participates in human trafficking.

Additionally, irregular migration generates social tensions in host communities, exacerbating existing conflicts and creating an environment conducive to radicalization and violence. The mass arrival of migrants in areas with limited resources often triggers clashes between local populations and newcomers, fueling xenophobic narratives and weakening social cohesion. These tensions are exploited by political and criminal actors to advance their own interests, turning irregular migration into a tool for destabilization.

Historical threats and international parallels

The dynamics described are not unique to Latin America. Similar patterns have been observed in other regions facing migration crises. For instance, in Europe, mass migration flows from the Middle East and North Africa have posed significant challenges to regional security and stability. Organizations such as ISIS have exploited migration routes to infiltrate operatives into Europe, using the chaos of the migration crisis to bypass border controls.

Similarly, in Africa’s Sahel region, armed groups and criminal networks have used the mass displacement of people as a strategy to expand their influence. Like the Tren de Aragua, these organizations combine illicit activities with political agendas, using migration as a means to consolidate power and destabilize governments in the region.

These parallels underscore the need to address transversal threats from a global perspective, recognizing that national solutions are insufficient for challenges that transcend borders. International experience demonstrates that multilateral cooperation and the implementation of comprehensive strategies are essential for effectively confronting these issues.

Impact on sovereignty and security

The presence of transversal threats in the border context has direct implications for state sovereignty and security. In terms of sovereignty, the inability to control migration flows and combat criminal networks undermines the state’s legitimacy, weakening its capacity to act as a guarantor of order and stability. This affects not only host countries but also has repercussions in international politics, where perceptions of weakness can be exploited by state and non-state actors.

In terms of security, transversal threats amplify risks associated with organized crime, terrorism, and social instability. In the United States, for example, the infiltration of transnational criminal networks like the Tren de Aragua presents significant challenges to internal security, as these organizations not only engage in illicit activities but also seek to influence the nation’s politics and economy.

Transversal threats in the border context represent a unique challenge that demands a coordinated and comprehensive response. The case of the Tren de Aragua and the dynamics of irregular migration in Latin America serve as a reminder that these issues cannot be addressed in isolation. States must adopt strategic approaches that combine robust internal measures with international cooperation to ensure long-term security and stability. In an increasingly interconnected world, borders are no longer mere lines of separation but points of interaction where local, regional, and global dynamics converge. It is within this space that an effective response to transversal threats must be built.

Building multilateral alliances

In the context of transversal threats, concretion cannot be limited to unilateral actions. Building multilateral alliances is essential to addressing the structural causes of irregular migration and ensuring a coordinated regional response. These alliances should include bilateral agreements between neighboring countries as well as regional initiatives involving multiple actors.

For example, strengthening cooperation between the United States and the Northern Triangle countries of Central America (Honduras, El Salvador, and Guatemala) is key to reducing migration pressure at the southern border. This can be achieved through joint economic development programs, anti-corruption initiatives, and institutional strengthening strategies in the countries of origin. These actions not only address the root causes of migration but also help stabilize affected regions, creating a safer and more prosperous environment for their populations.

Similarly, the participation of regional organizations, such as the Organization of American States (OAS), can facilitate policy coordination and resource mobilization at a continental level. These multilateral initiatives must be backed by solid financial commitments and accountability mechanisms to ensure their sustainability and effectiveness.

A hemispheric initiative: strengthening the TIAR as a tool against transversal threats

From the perspective of security and the management of transversal threats, such as irregular migration and transnational criminal networks, it is strategically imperative to strengthen and modernize the Inter-American Treaty of Reciprocal Assistance (TIAR). Also known as the Rio Treaty, this instrument was established in 1947 as a mechanism for collective defense against external aggression. However, the security context has changed profoundly since its inception, with traditional threats being replaced or supplemented by contemporary challenges that cross borders and sectors, such as drug trafficking, human trafficking, terrorism, and uncontrolled migration flows.

Originally designed to ensure hemispheric security during the Cold War, with a focus on external military threats, the TIAR now faces a regional stability landscape primarily threatened by internal dynamics. These challenges often transcend national borders and simultaneously affect multiple countries. Transnational criminal networks, such as Tren de Aragua, clearly illustrate how these threats exploit the lack of regional coordination to expand their operations. Similarly, migration crises, such as the one triggered by Venezuela's political and economic situation, have impacted all of Latin America, testing the capacity of states in the region to respond effectively.

Redefining the scope of the TIAR

To make the TIAR an effective tool in this new context, its scope must be redefined and adapted to current challenges. This entails broadening its concept of hemispheric threats to include non-traditional phenomena that pose significant risks to regional stability. Irregular migration and criminal networks, while not classic military threats, create economic, social, and security tensions that affect countries of origin, transit, and destination. Including these elements within the TIAR framework would allow member states to better coordinate efforts and resources.

Modernizing the TIAR also requires developing rapid response mechanisms to address emerging crises, such as spikes in migration flows or outbreaks of violence related to criminal networks. One example would be the creation of a specialized body within the treaty, composed of units from member states trained in border management, criminal intelligence, and humanitarian aid. This body could be rapidly deployed to critical areas, providing logistical and operational support to the most affected states.

Strengthening intelligence cooperation

Enhancing intelligence cooperation among member states is also crucial. One of the greatest limitations in addressing transversal threats is the lack of effective information-sharing. The establishment of a regional intelligence system, supported by the TIAR, would enable states to share data on criminal activities, migration movements, and other risk dynamics. Such a system would not only improve the anticipation of threats but also enhance the coordination of responses.

Stabilizing countries of origin

The TIAR can play a vital role in stabilizing countries of origin for migration flows. Although its mandate does not allow direct interventions in internal affairs, the treaty could serve as a channel for coordinating international efforts aimed at promoting economic development, democratic governance, and anti-corruption initiatives in these nations. These efforts would not only address the structural causes of irregular migration but also strengthen regional security.

A practical example: the Colombia-Venezuela border

The Colombia-Venezuela border exemplifies how the TIAR could be used to address transversal threats. This region is a critical point for drug trafficking, human trafficking, and the activities of criminal networks such as Tren de Aragua. A coordinated response under the TIAR framework could include joint security operations led by Colombia, Brazil, and the United States, supported by resources and capabilities from other member states. Additionally, the treaty could facilitate the establishment of care centers and temporary shelters in critical areas, ensuring respect for human rights while processing asylum requests and preventing the infiltration of criminal actors.

Integration with other regional frameworks

Strengthening the TIAR must also involve integrating it with other regional frameworks, such as the Central American Integration System (SICA) and the Andean Community (CAN). Such coordination would avoid duplication of efforts and ensure a more cohesive response to regional challenges. Collaboration with international organizations, such as the International Organization for Migration (IOM) and the United Nations High Commissioner for Refugees (UNHCR), would also be crucial for expanding the scope of actions and mobilizing additional resources.

Benefits of a strengthened TIAR

A strengthened TIAR would not only benefit the United States but the entire region. By providing a framework for collective action, the treaty would help reduce migration pressure in receiving countries, improve coordination in the fight against transnational criminal networks, and promote stability in regions of origin. This would not only reinforce hemispheric security but also lay the groundwork for lasting stability across the Americas.

The TIAR and the PCCR model

From the perspective of the concretion phase within the PCCR model, modernizing the TIAR is a strategic measure that transforms regional cooperation into tangible results. An updated treaty tailored to 21st-century needs would not only respond more effectively to transversal threats but also strengthen trust among member states and promote greater regional integration.

In a world where borders are increasingly porous, collective action is essential to ensure security and sustainable development in the hemisphere. A modernized TIAR would be a cornerstone of this collective effort, enabling the region to adapt and respond to emerging challenges effectively.

A previous conclusion

Border management in the 21st century presents challenges that surpass the traditional capacities of states, demanding more sophisticated and integrated approaches. Irregular migration, transnational criminal networks like Tren de Aragua, and the increasing interconnection of transversal threats not only compromise the security of host communities but also erode state sovereignty and threaten regional stability. These dynamics highlight the need to redesign traditional paradigms of border management.

In the Second Part of this Article, we will explain how Frontier Deterrence represents an innovative strategic model that addresses these issues from a comprehensive perspective, recognizing that border security extends beyond territorial control to encompass economic, social, and political dimensions. This approach not only enables effective management of current crises but also establishes a sustainable and adaptable framework for addressing future challenges.

For now, we think that the implementation of Frontier Deterrence requires a commitment to international cooperation and the modernization of tools such as the TIAR. These measures not only strengthen collective capacity to confront shared threats but also build trust among states and promote hemispheric stability. In a global environment where borders are increasingly porous and threats more interconnected, coordinated action is essential.