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Cuba: Issues for the 112Th Congress Cuba: Issues for the 112th Congress Mark P. Sullivan Specialist in Latin American Affairs February 24, 2012 Congressional Research Service 7-5700 www.crs.gov R41617 CRS Report for Congress Prepared for Members and Committees of Congress Cuba: Issues for the 112th Congress Summary Cuba remains a one-party communist state with a poor record on human rights. The country’s political succession in 2006 from the long-ruling Fidel Castro to his brother Raúl was characterized by a remarkable degree of stability. The government of Raúl Castro has implemented limited economic policy changes, including an expansion of self-employment begun in October 2010. A party congress held in April 2011 laid out numerous economic goals that, if implemented, could significantly alter Cuba’s state-dominated economic model. Few observers expect the government to ease its tight control over the political system. The government has reduced the number of political prisoners over the past several years, including the release of over 125 since 2010 after talks with the Catholic Church, but short-term detentions and harassment have increased significantly over the past year. Since the early 1960s, U.S. policy has consisted largely of isolating Cuba through economic sanctions. A second policy component has consisted of support measures for the Cuban people, including U.S.-sponsored broadcasting and support for human rights activists. In light of Fidel Castro’s departure as head of government, many observers called for a reexamination of policy. Two broad approaches toward Cuba have been at the center of debate. The first is to maintain the dual-track policy of isolating the Cuban government while providing support to the Cuban people. The second is aimed at changing attitudes in the Cuban government and society through increased engagement. Since taking office, the Obama Administration has lifted restrictions on family travel and remittances, moved to reengage Cuba on several bilateral issues, and eased restrictions on other types of purposeful travel and remittances. The Administration has criticized Cuba’s repression of dissidents, but has welcomed the release of political prisoners. The Administration has continued to call for the release of a U.S. government subcontractor, Alan Gross, detained since late 2009, who was sentenced to 15 years in March 2011. Strong interest on Cuba is continuing in the 112th Congress. The Senate approved S.Res. 366 on February 1, 2012, condemning the Cuban government for the death of democracy activist Wilman Villar Mendoza. In the first session, an attempt to roll back the Administration’s easing of restrictions on travel and remittances was unsuccessful. Such a provision had been included in the House Appropriations Committee version of the FY2012 Financial Services appropriations bill, H.R. 2434, but was not included in the FY2012 “megabus” appropriations measure (H.R. 2055, P.L. 112-74). Both H.R. 2434 and the Senate version of the bill, S. 1573, would have continued to clarify the definition of “payment of cash in advance” for U.S. agricultural exports to Cuba during FY2012, but the provision was not included in the “megabus” measure. Other initiatives that would increase sanctions include H.R. 2583, with a provision rolling back the easing of travel and remittance restriction, and H.R. 2831, intended to curb frequent travel to Cuba by Cubans who have recently emigrated to the United States. Several initiatives would ease sanctions: H.R. 255 and H.R. 1887 (overall sanctions); H.R. 833 and H.R. 1888 (agricultural exports); and H.R. 380 and H.R. 1886 (travel). Two initiatives, S. 603 and H.R. 1166, would modify a trademark sanction. Five bills, H.R. 372, S. 405, H.R. 2047, H.R. 3393, and S. 1836 would take different approaches toward Cuba’s offshore oil development. Two bills, S. 476 and H.R. 1317, would discontinue Radio and TV Martí broadcasts to Cuba. Also see CRS Report RL31139, Cuba: U.S. Restrictions on Travel and Remittances and CRS Report R41522, Cuba’s Offshore Oil Development: Background and U.S. Policy Considerations. Congressional Research Service Cuba: Issues for the 112th Congress Contents Recent Developments ...................................................................................................................... 1 Introduction...................................................................................................................................... 2 Cuba’s Political and Economic Situation.........................................................................................4 Brief Historical Background...................................................................................................... 4 Political Conditions ................................................................................................................... 5 Human Rights...................................................................................................................... 8 March 2012 Visit of Pope Benedict .................................................................................. 14 Economic Conditions .............................................................................................................. 15 Economic Changes Under Raúl Castro............................................................................. 17 Cuba’s Foreign Relations ........................................................................................................21 U.S. Policy Toward Cuba............................................................................................................... 23 Background on U.S.-Cuban Relations..................................................................................... 23 Clinton Administration’s Easing of Sanctions................................................................... 24 Bush Administration’s Tightening of Sanctions................................................................ 24 Debate on the Direction of U.S. Policy ................................................................................... 25 Obama Administration Policy ................................................................................................. 26 Issues in U.S.-Cuban Relations...................................................................................................... 29 U.S. Restrictions on Travel and Remittances .......................................................................... 29 Legislative Proposals Regarding Travel and Remittances ................................................ 32 U.S. Agricultural Exports and Sanctions................................................................................. 34 Trademark Sanction................................................................................................................. 37 Anti-Drug Cooperation............................................................................................................ 39 Cuba’s Offshore Oil Development .......................................................................................... 40 Terrorism Issues....................................................................................................................... 43 U.S. Funding to Support Democracy and Human Rights........................................................ 45 Oversight of U.S. Democracy Assistance to Cuba............................................................ 47 December 2009 Detainment of Alan Gross....................................................................... 48 Radio and TV Marti................................................................................................................. 50 Funding for Cuba Broadcasting ........................................................................................ 51 Controversies..................................................................................................................... 52 Migration Issues ...................................................................................................................... 54 1994 and 1995 Migration Accords.................................................................................... 54 Coast Guard Interdictions.................................................................................................. 55 Migration Talks .................................................................................................................56 Cuban Spies in the United States............................................................................................. 58 th Legislative Initiatives in the 112 Congress.................................................................................. 59 Enacted Measures.................................................................................................................... 59 Additional Initiatives............................................................................................................... 60 th Legislation in the 111 Congress................................................................................................... 64 Approved Measures................................................................................................................. 64 Additional Considered Measures with Cuba Provisions ......................................................... 66 Congressional Research Service Cuba: Issues for the 112th Congress Figures Figure 1. Map of Cuba....................................................................................................................
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