Both cities exist in the same physical space, but remain distinct because citizens of one are taught from childhood to “unsee” the people, buildings and events of the other. Anyone caught crossing these psychological borders, or “breaching”, risks punishment from a merciless and all-powerful authority, confusingly referred to as “Breach”.
I think he's just come off binging on The City and the City
https://www.theguardian.com/tv-and-radio/2018/apr/07/the-city-and-the-city-review-bbc-two-sci-fi-crime-fiction-china-mieville