Cuba: Issues for the 111th Congress Mark P. Sullivan Specialist in Latin American Affairs July 16, 2010 Congressional Research Service 7-5700 www.crs.gov R40193 CRS Report for Congress Prepared for Members and Committees of Congress Cuba: Issues for the 111th Congress Summary Cuba remains a hard-line communist state with a poor record on human rights. The country’s political succession from the long-ruling Fidel Castro to his brother Raúl was characterized by a remarkable degree of stability. Fidel stepped down from power in July 2006 because of health reasons, and Raúl assumed provisional control of the government until February 2008 when he officially became president. His government has implemented limited economic policy changes, but there has been disappointment that further reforms have not been forthcoming. The economy was hard hit by storms in 2008, and the global financial crisis caused further strains. Few observers expect the government to ease its tight control over the political system, although it did agree in July 2010 to release 52 political prisoners after talks with the Cuban Catholic Church. 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 private humanitarian donations, U.S.-sponsored broadcasting to Cuba, and support for human rights activists. In light of Fidel Castro’s departure as head of government, many observers have called for a re-examination of sanctions policy. In this new context, two broad approaches have been advanced: an approach that would maintain the dual-track policy of isolating the Cuban government while providing support to the Cuban people; and an approach aimed at changing attitudes in the Cuban government and society through increased engagement. The Obama Administration has lifted restrictions on family travel and remittances; eased restrictions on telecommunications links with Cuba; and restarted semi-annual migration talks. In 2010, the Administration strongly criticized the government’s repression of dissidents and human rights activists, including the death of a hunger striker in February 2010, while it welcomed Cuba’s July 2010 announcement of a prisoner release as a positive sign. The Administration has also called for the release of a U.S. government subcontractor imprisoned in Cuba since December 2009. The 111th Congress approved three provisions in the FY2009 omnibus appropriations measure (P.L. 111-8) in March 2009 that eased sanctions on family travel, travel for the marketing of agricultural and medical goods, and payment terms for U.S. agricultural exports. In December 2009, Congress included a provision in the FY2010 omnibus appropriations legislation (P.L. 111- 117) that eased payment terms for U.S. agricultural exports to Cuba during FY2010 by defining the term “payment of cash in advance,” and also continued funding for Cuba democracy programs and Radio and TV Martí broadcasting. In May 2009, the Senate approved S.Res. 149, related to freedom of the press, while in March 2010 it approved S.Con.Res. 54, recognizing the life of a Cuban hunger striker. Numerous initiatives have been introduced that would ease sanctions: H.R. 188, H.R. 1530, and H.R. 2272 (overall sanctions); H.R. 874/S. 428 and H.R. 1528 (travel); H.R. 332 (educational travel); H.R. 1531/S. 1089 and H.R. 4645/S. 3112 (agricultural exports and travel); H.R. 1737 (agricultural exports); and S. 774, H.R. 1918, and S. 1517 (hydrocarbon resources). H.R. 1103/S. 1234 would modify a trademark sanctions, while several bills cited above would repeal the sanction. S. 1808 would eliminate Radio and TV Martí. Measures that would increase sanctions are H.R. 2005 (related to fugitives), H.R. 2687 (OAS participation), and H.R. 5620 (Cuba’s oil development). H.Con.Res. 132 calls for the fulfillment of certain democratic conditions before the United States increases trade and tourism to Cuba. Also see CRS Report RL31139, Cuba: U.S. Restrictions on Travel and Remittances. Congressional Research Service Cuba: Issues for the 111th Congress Contents Recent Developments..................................................................................................................1 Political Conditions.....................................................................................................................3 March 2009 Government Shake-Up ......................................................................................4 Background to the Succession...............................................................................................5 Human Rights.......................................................................................................................7 Background ....................................................................................................................7 Death of Hunger Striker Orlando Zapata Tamayo ............................................................9 Political Prisoners .........................................................................................................10 Economic Conditions................................................................................................................12 Economic Changes Under Raúl...........................................................................................13 Cuba’s Foreign Policy...............................................................................................................16 U.S. Policy Toward Cuba ..........................................................................................................17 Policy Overview .................................................................................................................17 Debate on the Direction of U.S. Policy................................................................................18 Clinton Administration’s Easing of Sanctions......................................................................19 Bush Administration Policy.................................................................................................19 Commission for Assistance to a Free Cuba ....................................................................19 U.S. Reaction to Cuba’s Political Succession.................................................................21 Obama Administration Policy..............................................................................................23 Issues in U.S.-Cuban Relations .................................................................................................26 Restrictions on Travel and Remittances ...............................................................................26 Agricultural Exports and Sanctions .....................................................................................28 Legislative Action and Initiatives on Agricultural Sanctions ..........................................29 Trademark Sanction ............................................................................................................32 Offshore Oil and Natural Gas Development ........................................................................33 Drug Interdiction Cooperation.............................................................................................35 Legislative Initiatives....................................................................................................36 Cuban Spies in the United States.........................................................................................37 Cuba and Terrorism.............................................................................................................38 Cuba as the Victim of Terrorism....................................................................................40 U.S. Funding to Support Democracy and Human Rights......................................................41 Oversight of U.S. Democracy Assistance to Cuba..........................................................43 December 2009 Detainment of American Subcontractor................................................44 Radio and TV Marti............................................................................................................45 Controversies................................................................................................................46 Funding for Cuba Broadcasting.....................................................................................48 Migration Issues..................................................................................................................50 1994 and 1995 Migration Accords.................................................................................50 Coast Guard Interdictions..............................................................................................50 Migration Talks.............................................................................................................52 Guantanamo Naval Base .....................................................................................................53 Cuba and the Organization of American States ....................................................................54 Background on Cuba’s Exclusion from the OAS in 1962...............................................54 Efforts to Reinstate Cuba’s Participation in the OAS .....................................................56 th Legislative Initiatives in the 111 Congress...............................................................................59