Assessing United States of America's Engagement
ASSESSING UNITED STATES OF AMERICA’S ENGAGEMENT IMPLEMENTATIONS TOWARDS THE REPUBLIC OF CUBA UNDER PRESIDENT BARACK OBAMA ADMINISTRATION (2009-2016)
By
LELA TRESNA ASIH 016201300083
A thesis presented to the Faculty of Humanities President University in partial fulfillment of the requirements for Bachelor Degree in International Relations Concentration in Diplomacy
JANUARY 2017
THESIS ADVISER RECOMMENDATION LETTER
This thesis entitled “Assessing United States of America’s Engagement Implementations towards The Republic of Cuba under President Barack Obama Administration (2009-2016)” prepared and submitted by Lela Tresna Asih in partial fulfillment of the requirements for the degree of Bachelor of Arts in the Faculty of Humanities has been reviewed and found to have satisfied the requirements for a thesis fit to be examined. I therefore recommend this thesis for Oral Defense.
Cikarang, Indonesia, January , 2017
Recommended and Acknowledged by,
Drs. Teuku Rezasyah, M.A., Ph.D.
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DECLARATION OF ORIGINALITY
I declare that this thesis, entitled “Assessing United States of America’s Engagement Implementations towards The Republic of Cuba under President Barack Obama Administration (2009- 2016)” is, to the best of my knowledge and belief, an original piece of work that has not been submitted, either in whole or in part, to another university to obtain a degree.
Cikarang, Indonesia, January 27th, 2017
Lela Tresna Asih
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ABSTRACT
“ASSESSING UNITED STATES OF AMERICA‟S ENGAGEMENT IMPLEMENTATIONS TOWARDS THE REPUBLIC OF CUBA UNDER PRESIDENT BARACK OBAMA ADMINISTRATION (2009-2016)”
Adviser: Teuku Rezasyah
Normalization means to restore relations between countries. United States and Cuba finally agreed to have bilateral normalization after being isolated from each other for more than a half century. The normalization itself is initiated by President Barack Obama and President Raul Castro on December 17, 2014. The hostility policy which divided United States and Cuba from each other is failed to bring change in Cuba which is favored by United States. Rather than keep pursuing a failed policy to justify United States relations with Cuba, President Obama thought that policy engagement and coexistence would address United States interests in Cuba better than the hostility policy. United States under President Obama seeks for a new approach which might be beneficial to handle United States and Cuba‟s affairs after the normalization. Engagement policy is initiated following the normalization, President Obama stated that United States would end its failed policy and shift into policy engagement and coexistence with Cuba. This policy opened up new loop to engage more with the Cubans. It fosters the United States‟ interest to influence Cuba to uphold democracy and human right values. One of the initiations is Cuban-American family reunion which had been separated for a long time, and hope that the American would interact more with Cuban so Cuba could transform into more democratic country eventually.
Keywords: United States of America, The Republic of Cuba, normalization, engagement, embargo.
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ABSTRAK
“MENILAI IMPLEMENTASI ENGAGEMENT AMERIKA SERIKAT TERHADAP REPUBLIK KUBA PADA MASA PEMERINTAHAN BARACK OBAMA (2009-2016)”
Pembimbing: Teuku Rezasyah
Normalisasi adalah pemulihan hubungan antar-negara. Amerika Serikat dan Kuba bersepakat untuk menormalisasi hubungan bilateral yang mengasingkan satu sama lain selama lebih dari setengah abad. Normalisasi tersebut dicetuskan oleh President Barack Obama dan Presiden Raul Castro pada tanggal 17 Desember 2014. Kebijakan luar negeri hostility yang diimplementasikan Amerika Serikat dan memisahkan kedua negara dari satu sama lain telah gagal untuk membawa perubahan yang diinginkan oleh Amerika Serikat di Kuba. Maka dari itu, daripada melanjutkan kebijakan luar negeri yang gagal terhadap Kuba, Presiden Obama menyatakan bahwa kebijakan luar negeri engagement atau coexsistence akan mewujudkan kepentingan Amerika Serikat lebih baik dari kebijakan luar negeri hostility. Amerika Serikat pada masa pemerintahan Presiden Obama menemukan pendekatan baru yang berfungsi untuk menangani hubungan antara Amerika Serikat dan Kuba paska normalisasi. Kebijakan luar negeri engagement diinisiasi setelah normalisasi terjadi, Presiden Obama berkomitmen untuk menghentikan kebijakan luar negeri yang telah gagal dan menggantinya dengan kebijakan luar negeri engagement dan coexsistence terhadap Kuba. Kebijakan luar negeri tersebut membangun jembatan baru untuk terlibat dan bekerja sama dengan Warga Kuba. Kebijakan luar negeri tersebut membantu untuk mencapai kepentingan Amerika Serikat untuk mempengaruhi Kuba agar menjunjung tinggi nilai-nilai demokrasi dan menghormati hak asasi manusia. Salah satu inisiatif yang terkandung dalam kebijakan tersebut adalah reuni keluarga diantara Warga Kuba-Amerika dan keluarga mereka di Kuba yang telah berpisah untuk waktu yang lama, dan berharap bahwa Warga Amerika dapa lebih berinteraksi dengan Warga Kuba sehingga Kuba mampu berubah menjadi negara yang lebih demokratis secepatnya.
Kata Kunci: Amerika Serikat, Republik Kuba, normalisasi, engagement, embargo.
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ACKNOWLEDGEMENT
First of all I would like to convey my gratefulness to Allah SWT for his infinite blessings. I finally finished and accomplished one of the most important steps in my University life which is thesis. I have spent years of my life to study in President University and it will be an unforgettable experience for me in the future.
My parents who endlessly love me for the way I am. The parents who always try their best to fulfill their daughter needs, the parents who do not even take care of themselves well to provide all the best for their daughters. Hereby here, their nagging daughter will promise them that I will be someone for them to be proud of in the future. Also to my sister, Lelly, who support me as well all this time. Thank you, I may not say this often but I love you.
My advisers; Sir Teuku Rezasyah and Ms. Isyana Adriani who assisted me since the first time I wrote my thesis until I managed to finish it right on time. Thank you, I would do nothing without both of you.
For friends who stay behind my back: Yanri, Khoirunnisa, Dwi, Maretha, Ega, Marietta, Efi, and my fellow University friends. I hope we can reap our hard work in the future. Let us work harder and meet again when we succeed in the future, shall we? Thank you for all the bittersweet, laughter, and for being there when I need someone to rely on.
Sincerely,
Lela Tresna Asih
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TABLE OF CONTENTS
THESIS ADVISER RECOMMENDATION LETTER ...... i DECLARATION OF ORIGINALITY ...... ii ABSTRACT ...... iii ACKNOWLEDGEMENT ...... v TABLE OF CONTENTS ...... vi LIST OF ABBREVIATIONS ...... ix CHAPTER I...... 1 INTRODUCTION ...... 1 I.1. Background of Study ...... 1 I.2. Problem Identified ...... 5 I.3. Statement of the Problem ...... 6 I.4. Research Objectives ...... 7 I.5. Significance of the Study ...... 7 I.6. Theoretical Framework ...... 7 I.6.1. Realism Theory ...... 7 I.6.2. Foreign Policy ...... 8 I.6.3. Conceptual Framework ...... 9 I.7. Scope and Limitations of the Study ...... 10 I.8. Literature Review ...... 10 I.9. Research Methodology ...... 18 I.9.1. Qualitative Research ...... 18 I.9.2. Data Collections ...... 19 I.10. Thesis Structure ...... 20 CHAPTER II ...... 22 DIPLOMATIC RELATIONS BETWEEN UNITED STATES - CUBA ...... 22 II.1. Cuba‟s History of Recognition ...... 22 II.2. United States and Cuba Relations during Cold War Period ...... 23 II.2.1. Cuba Revolution 1959 ...... 24 II.2.2. United States Embargoed Cuba ...... 27 II.2.3. Bay of Pigs Invasion ...... 30
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II.2.4. Operation Mongoose ...... 30 II.2.5. Cuban Missile Crisis ...... 31 II. 3. Chapter Conclusion ...... 33 CHAPTER III ...... 34 UNITED STATES - CUBA NORMALIZATION UNDER PRESIDENT OBAMA ADMINISTRATION ...... 34 III.1. The Background of United States-Cuba Normalization ...... 34 III.1.1. The failure of policy of hostility ...... 34 III.1.2. Cuban-American support ...... 36 III.1.3. Cuba under President Raul Castro ...... 37 III.2. United States-Cuba Bilateral Normalization ...... 38 III.3. Regional Response ...... 41 III.4. United States Engagement Policy...... 41 III.5. Chapter Conclusion ...... 43 CHAPTER IV ...... 44 THE IMPLEMENTATION OF UNITED STATES - CUBA ENGAGEMENT PROCESS ...... 44 IV.1. President Obama First Administration (2008-2012) ...... 44 IV.2. President Obama Second Administration (2012-2016) ...... 47 IV.3. Engagement Process ...... 48 IV.3.1. The National Security Council (NSC) ...... 49 IV.3.2. The Department of State ...... 50 IV.3.3. The U.S. Mission to the United Nations (USUN) ...... 52 IV.3.4. The Department of the Treasury ...... 54 IV.3.5. The Department of Defense (DOD) ...... 56 IV.3.6. The Department of Homeland Security (DHS) ...... 57 IV.3.7. The Department of Justice (DOJ) ...... 58 IV.3.8. The Small Business Administration (SBA)...... 60 IV.3.9. The Office of the U.S. Trade Representative ...... 60 IV.3.10. The Department of Agriculture (USDA) ...... 61 IV.3.11. The Department of Health and Human Services (HHS) ...... 62 IV.3.12. The U.S. Agency for International Development (USAID) ...... 63 IV.3.13. The Department for Transportation (DOT) ...... 65
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IV.3.14. The Office of the Director of National Intelligence (DNI) ...... 66 V.3.15. The Department of the Interior (DOI) ...... 67 IV.4. The Implementation of United States Engagement Process to advance U.S. Interest in Cuba ...... 68 IV.5. Chapter Conclusion ...... 70 CHAPTER V ...... 72 CONCLUSION ...... 72 BIBLIOGRAPHY ...... 74 APPENDICES ...... 85
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LIST OF ABBREVIATIONS
DHS = The Department of Homeland Security
DNI = The Office of the Director of National Intelligence
DOD = The Department of Defense
DOI = The Department of the Interior
DOJ = The Department of Justice
DOT = The Department for Transportation
HHS = The Department of Health and Human Services
NSC = National Security Council
PCC = Partido Communista de Cuba
PSP = Partido Socialista Popular
SBA = The Small Business Administration
U.S. = United States of America
USAID = The U.S. Agency for International Development
USDA = The U.S. Department of Agriculture
USUN = The U.S. Mission to the United Nations
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CHAPTER I
INTRODUCTION
I.1. Background of Study
To manage world and peace security state is encouraged to involve in bilateral cooperation. Resources are limited so each state could not fulfill its own needs. That is why enhancing cooperation with other states is significantly important, not only to manage the good relationship but to fulfill national interest and to achieve national prosperity.1
Despite of the positive impacts resulted from cooperation clash is inevitable. And no one could guarantee that interstate relations will remain stable even though they try to manage good cooperation amongst them, U.S. and Cuba is one of the examples that friendly bilateral cooperation is not long lasting. Moreover Cuba was part of U.S. after U.S. defeated Spain in American-Spanish War in 1898. After several wars of independent, Cuba gained its independence with U.S. assistance. United States disarmed the Cuban rebels who were loyal to Spain, provided aid for the Cubans, improved Cuba‟s infrastructure, as well as organized the Cuban‟s government.2
U.S. and Cuba are intertwined in unfavorable relations for more than five decades ago before the two countries finally opened up to relationship normalization on December 17, 2014.3 It has been decades since the tension between the two countries escalated. Cuba gained formal independence with U.S.
1 Kaarbo, J., & Ray, J. (n.d.). Global Politics. Cengage Learning. 2 Munro, D. G. (2007, December). The United States and the Caribbean Area. Retrieved February 25, 2017, from Questia Web site: http://www.questia.com/PM.qst?a=o&d=6444051 3 Meacham, C.cc, & Rafferty, J. (2016). Can Agricultural Cooperation Strengthen U.S.-Cuba Normalization. America: Center for Strategic & International Studies. 1 assistances in 1902, it made U.S. had the right to interfere the country to protect its interest based on The Platt Amendment.4
The Platt Amendment 1901 is firstly drafted as a framework for U.S.-Cuba relations. It was a treaty between U.S. and Cuba in accordance with Cuba‟s independence. According to the Article III of Platt Amendment U.S. reserved the right to make Cuba independent and the right to form Cuban government who could ensure Cuban security and prosperity.5
“Article III. The Government of Cuba agrees that the U.S. has the right to intervene for the preservation of Cuban independence, the maintenance of a government adequate for the protection of life, property, and individual liberty, and for discharging the obligations with respect to Cuba imposed by the Treaty of Paris on the U.S., now to be assumed and undertaken by the Government of Cuba. . . .”
U.S. kept disrupting Cuban‟s sovereignty and it gained the rights to place and replaces Cuban government, acquire naval base and dictate Cuba regarding who will Cuba has treaty with. However in the end Cuba‟s Constitutional Convention acknowledged that the country only deserves limited sovereignty or no sovereignty at all therefore they should allow U.S. interfere the domestic affairs in Cuba to be an independent country.6
Leaders in Cuba came and went as U.S. wished. Tension started in 1959 when Fidel Castro led the revolution to seize the country‟s power. He succeeded his movement and took over the regime after toppling down President Fulgencio Batista, a dictator leader supported by United States.7
Castro succeed toppled down President Batista regime and became Cuba‟s President in 1959. This was the root cause of the bilateral relations‟ rupture. Cuba under President Castro gave no favor to U.S. and turned into Soviet Union‟s side.
4 United States Department of State. (n.d.). The United States, Cuba, and the Platt Amendment, 1901. Retrieved Octber 23, 2016, from Office of The Historian: www.history.state.gov 5 An Amendment established under which the United States would end its military occupation of Cuba (which had begun in 1898 during Spanish-American War). It laid down eight conditions to which Cuban government had to agree before the withdrawal of U.S. forces adn the transfer of sovereignty would begin. (Office of the Historian, Bureau of Public Affairs, 1901) 6 Fulgencio Batista. Cuba Betrayed. New York: Vantage Press, 1962, 188 7 History. (n.d.). Cuban dictator Batista falls from power. Retrieved October 8, 2016, from Histrory website: www.history.com/this-day-in-history/cuban-dictator-batista-falls-from-power 2
This thing mattered very much to the relationship between the two countries. Further issues emerged such as Cuba nationalized United States‟ assets. Responding Cuba‟s betrayal and nationalization, U.S. gave economic sanction to Cuba and cut off its diplomatic ties with Cuba.8
United States imposed hostility policy to Cuba due to Cuba‟s proximity with the Soviet Union. Hostility or containment is a foreign policy pursued by U.S. during the Cold War in order to limit Soviet Union expansionism.9 According to U.S. policy of hostility, U.S. will not end its hostility with Cuba unless Cuba transform to a democratic country.10
Therefore the idea to normalize the relations remains a sensitive issue because human right violations are still there in Cuba. Many Cuban-American in Florida said that it is hopeless to re-establish relations with Cuba before the government could improve democracy, human rights record and chase Castro away from the office.11 In 1991 87 per cent Cuban-American supported U.S. decision to impose economic embargo towards Cuba, meanwhile surprisingly in 2014 the percentage turned 52 per cent opposed the economic embargo and wished that the embargo towards Cuba could be lifted.12
Obama was U.S. Senator and he had been showing his concern towards U.S.-Cuba long standing diplomatic rupture. He conveyed his willingness to change U.S. policy towards Cuba during electoral campaign in 2008. He said he will foster the Cubans to determine their own living and ease embargo especially travel restriction. He gained Cuban‟s hearts because he showed his respect towards Cubans, especially Cuban-Americans who dream of family reunion
8 Encyclopaedia Britannica, Inc. (n.d.). Britannica Book of the Year 2010. Retrieved October 10, 2016, from Encyclopaedia Britannica Web site. 9 GerdaJakstaite. (2010). Containment and Engagement as Middle-Range theories. 10 Leogrande, W. (2015). Normalizing US–Cuba relations: Escaping The Shackles of The Past. International Affairs, 473-488. 11 The ruling Cuban government continually seizes the freedom of expression to criticize the government. In contrast, the government spread public fears like beating, employment termination, as well as imprisonment. Cuba eliminate traveling visa and restrict Cubans living abroad to visit the island. Retrieved from Human Rights Watch. (2014). World Report 2014: Cuba. New York: Human Rights Watch. 12 Grenier, & Gladwin. (n.d.). „FIU Cuba poll‟, 1993–2014. Retrieved from https://cri.fiu.edu/research/cuba-poll/ 3 because they had been separated since the diplomatic relations between the two countries broken.
He elected as U.S.‟ President in 2009 and started to arrange plan to normalize U.S. with Cuba. Different with his predecessors President Barack Obama considered that it is better to get involved with Cuban policy rather than only focus on how to change Cuban regime into more favorable way to United States.13
He enhanced government to government negotiation with Cuba government which led by President Raul Castro. U.S. normalization plan with Cuba was one of the administration‟s priorities. The relations did not seem very much better after the detention of U.S. citizen, Alan Gross, who was bringing communication equipment to Cuba‟s Jewish community on December 3, 2009. Therefore the process of normalization was pushed away.14
President Obama first term was not significant to rebuild U.S.-Cuba relations because his first term only focused on how to release Alan Gross. He got re-elected in 2012 and it was the beginning of the U.S. and Cuba relations thaw. President Obama considered bringing back U.S.-Cuba normalization plan as one of the priorities during his second term. The embargo to isolate Cuba from the rest of the world made no sense consequently the normalization ought to be urged to see how far U.S. could fight for its objectives in Cuba.15
Surprisingly in 2014 both U.S. and Cuba jointly announced that the two countries will fix the bilateral rupture between them and move forward to have normalization. Both countries finally recognized the importance of rebuilding network which had been cut off for almost a half century. U.S. realizes that it is not easy to deal the differences amongst them however U.S. is aware that engagement would be better to address the differences with Cuba. The
13 gr, & Gladwin. (n.d.). „FIU Cuba poll‟, 1993–2014. Retrieved from https://cri.fiu.edu/research/cuba-poll/ 14 Trotta, D., & Spetalnick, M. (2014, December 17). Cuba releases American Alan Gross as U.S. prepares to overhaul Cuba policy. Dipetik February 26, 2017, dari Reuters Web site: www.uk.mobilereuters.com 15 Grenier, & Gladwin. (n.d.). „FIU Cuba poll‟, 1993–2014. Retrieved from https://cri.fiu.edu/research/cuba-poll/ 4 announcement was signified the new bilateral relations thaw through engagement policy.16
I.2. Problem Identified
After defeating Spain on Spanish-American War in 1898, Cuban politics and economy is indirectly influenced by the United States. U.S. impacted Cuban economy and vice versa, the trading relationship amongst them was also run smoothly. U.S. was not only export market for Cuba but it was also the import market for Cuba.
U.S. interventionist policy aroused Cubans resentment due to U.S. Presidential succession to form tyrannical governance in Cuba to secure U.S. security and national interests. Cuban anger peaked in 1950s represented by Fidel Castro led uprising to overthrow President Fulgencio Batista regime. Revolution happened in Cuba symbolized President Fidel Castro communist governance, ended the friendly friendship that built for years with United States. Even worse since Cuba leaned towards Soviet Union after the end of Cold War and led to U.S. embargoed Cuba.17
U.S. President Barack Obama was first elected in 2008 and he got U.S.- Cuba diplomatic severe as the legacy from the previous leaders. President Obama had always been committed to achieve its objectives in Cuba through engagement and coexistence rather than coercive actions like his predecessors. He launched people-to-people policy as the first step to improve both countries‟ relations thaw.18
16 Office of the Press Secretary. (2014, December 17). Statement by The President on Cuba Policy Changes. Retrieved October 23, 2016, from The White House Web site: www.whitehouse.gov 17 Holmes, A.-M. (2009). The United States and Cuba 1898-1959. 18 Office of The Press Secretary. (2009, April 13). Fact Sheet - Reaching out to the Cuban people. Retrieved December 11, 2016, from The White House Web site: https://www.whitehouse.gov/the- press-office/fact-sheet-reaching-out-cuban-people 5
December 17, 2014 was the peak of U.S. effort to re-establish the relations with Cuba, normalization formally announced in both Washington and Havana.19 On his official speech U.S. President Barack Obama said that the time to be trapped in silence with Cuba has come to an end, he put aside his predecessors‟ intention to change Cuban manner but rather he would encourage change in Cuba by other means. The policy engagement will be more effective to enhance both countries normalization. The day marked the policy shifting in U.S. from policy of hostility into engagement policy.20
A White House fact sheet explained President Obama‟s new policy encouraged new approach of engagement and coexistence to support the Cubans instead of contributing policy which will make Cuba as a failed country.21 U.S. is committed to empower economic advancement for Cubans, said U.S. Treasury Secretary Jacob J. Lew in 2016. President Obama eased travel restriction and launched sanction modification regarding to cash remittances to Cuba. These modifications are expected to be alternatives to bring democracy and political openness in Cuba through Cuba self-consciousness.
President Obama assured that engagement policy fits to be the new approach in order to pursue U.S. objectives; to help the Cubans developed so they can determine their future without being dependent to the Cuban government. The new policy intends to enhance Cuban better future as well as working together with U.S. to fight regional problems.22
I.3. Statement of the Problem
“How did President Obama government implement engagement process towards Cuba (2009-2014)?
19 Armstrong, F. (2016, May 18). U.S.-Cuba Normalization: Entering a New, Challenging Phase. Retrieved October 9, 2016, from Cuba Journal Web Site: www.cubajournal.co/u-s-cuba- normalization-entering-a-new-challenging-phase/ 20 Office of the Press Secretary. (2014, December 17). Statement by The President on Cuba Policy 21 Ibid. 22 Leogrande, W. (2015). Normalizing US–Cuba relations: Escaping The Shackles of The Past. International Affairs.
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I.4. Research Objectives
Based on the statement of the problem above, the main objectives of this research are:
1. To explain the implementation of President Obama engagement policy towards Cuba.
I.5. Significance of the Study
U.S. and Cuban governments launched certain efforts such as hold secret talks with Cuban counterparts for 18 months to achieve normalization. This research intends to inform the respective readers about the background history of U.S. embargo to Cuba which leads to the absence of diplomatic ties between them. To explain the major causes of President Obama breakthrough to re- establish bilateral relations this had been cut off for years. Inform the readers about the implementation and the progress of President Obama engagement policy from 2014 to 2016. Lastly, assist whether the conduct of this engagement policy is better to address U.S. objectives towards Cuba.
I.6. Theoretical Framework
I.6.1. Realism Theory U.S. is powerful but it could only influence sovereign countries, not controlling them because its power has limitation. World politics today looks like three dimensional chess board. The top part is about military, the middle part is about economic relations meanwhile the bottom part describes about transnational relations such as climate issue, drugs, terrorism, trafficking in person, and environmental issues. More issues are compiled in the bottom and military power itself will not be enough to handle those new threats. Hence intergovernmental cooperation and cooperation with other international organizations is advisable.
Realism is one of the major theories in international relations. According to realism, states are working to maximize their power. Power
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is the last resort or power is ought to be the primary end of political action. International community is anarchy, no state is above the others, no international government that enforces certain regulations.23 In the connection, a prominent realist, Thomas Hobbes viewed that no morality or justice are exist in international relations. Accordingly, state will view other states with fear, hostility, or as a threat.24
State would not achieve its national interests unless it against the other nation‟s interest especially if they fought over the limited resources. The nature stated that foreign policy is created to advance national interest however according to this theory foreign policy is created based on what the stage could gain from the others. Any attempts such as giving aid or a helping hand to the other states cannot be separated from the self-serving motive behind. Therefore according to realism, the attempt to introduce morality to international affair is futile.25
According to realism, the world is dangerous and the only certainty in the world is power especially in the form of military power. Realism only acknowledges state as the international actor therefore international organizations or institutions have no power.
I.6.2. Foreign Policy Foreign policy reflects a country‟s behavior on its interaction with other countries. Foreign policy is a country‟s policies to interact with the environment beyond its borders. According to Breuning foreign policy focuses on how to achieve national interests.26 Foreign policy covers diplomacy, military and security policy, international human rights policies, economic policies as well as environmental policy. Foreign policy is created to achieve national interest.
23 Internet Encyclopedia of Philosophy. (t.thn.). Political Realism. Retrieved March 5, 2017, from Internet Encyclopedia of Philosophy Web site: www.iep.utm.edu/polreal/ 24 Hobbes, Leviathan. 25 Internet Encyclopedia of Philosophy. (t.thn.). Political Realism. Retrieved March 5, 2017, from Internet Encyclopedia of Philosophy Web site: www.iep.utm.edu/polreal/ 26 Breuning, M. (2007). Foreign Policy Analysis: A Comparative Introduction. Palgrave MacMillan.
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National leaders may apply different set of rule when they deal with international affairs. Foreign policy analysis is a study of the state‟s behavior and to find out who have role in the state at the domestic level. Not only knowing what kind of decision is taken but also find out those who participate in the decision making process.
Individual level of analysis explains about people who involve in foreign policy decision making process. Individual level of analysis will seek leader‟s individual trait such as personality, ego or ambition, and the leader‟s political experiences. State level analysis characterizes the state‟s characteristics and how the state implements its foreign policy. The last is system level of analysis which focuses on the external controls on foreign policy. It analyzes social, economic, geographical and political characteristics and how they affect the states‟ actions.
The concept of foreign policy will be beneficial for the writer to analyze current ruling leaders of U.S. and Cuba who finally marked historical movement towards new chapter between the two countries which is bilateral relationship normalization. Furthermore President Barack Obama launched a new policy to support his normalization policy towards Cuba so the concept of foreign policy is beneficial. This concept will mainly implicate in the term of assessing U.S. new policy to Cuba under President Barack Obama administration.
I.6.3. Conceptual Framework
Realism
Obama I United States Engagement Democracy & HR Obama II
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United States under President Obama first and second administration is determined to pursue policy of engagement with the Cuban counterparts. United States had been imposing foreign policy to spread democracy and human rights in Cuba. According to realism theory, foreign policy is objected to achieve national interests. In accordance, United States policy of engagement is created to spread democracy and human rights through engagement with the Cuban counterparts.
I.7. Scope and Limitations of the Study
This research mostly focused on engagement policy undertaken by U.S. President, Barack Obama, during his presidency in 2014-2016. The issue has quite extensive coverage so the writer limits the study of this research as following limitation below:
a. This research is going to describe the causes of diplomatic relations severe between the two countries by providing information about Fidel Castro revolution in 1959 which led into U.S. embargoed Cuba. b. This research is going to elaborate President Obama new approach to bring closer ties with Cuba.
I.8. Literature Review
This is an overview about what is going on between U.S. and Cuba from researches that have been conducted previously as an input to the writer. Literature review defines as a way to evaluate a study that has correlation with the research area. This literature review will give theoretical basis for the writer and help to determine the nature of the research. The writer will be able to summarize the knowledge gained from the literatures. The writer tried to identify the focus, issues discussed, key findings and the contextual relevancy with the research. It is basically important to be familiar with the previous research and study in the related topics.
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The literature review consists of one book and three journals, which are:
Journals:
1. Containment and Engagement as Middle-Range theories by GerdaJakštaitė, 2010. 2. The History and Potential of Trade between Cuba and the US by Cassandra Copeland, Curtis Jolly and Henry Thompson in Journal of Economics and Business, 2011. 3. Normalizing US-Cuba Relations: Escaping the Shackles of the Past by William M. Leo Grande, 2015. Books:
1. Democracy Delayed: The Case of Castro by Juan J. López, 2002.
The journal Containment and Engagement as Middle-Range theories by GerdaJakštaitė presents the view that realism is a Meta theory and distinguished that containment and engagement are middle-range theory. Containment and engagement are foreign policy strategies to balance the power upon the opponent. Containment is often used to limit the opponent‟s power meanwhile engagement is objected to change the opponent‟s foreign or domestic policy.
The classical realism‟s scope is very broad. One of the influential academicians is H. Morgenthau who contributed to the classical realism‟s development. Morgenthau expresses that foreign policy is grounded on the national objectives and guided by national interests.27 According to classical realism, there are two ways for a state to balance its power; preserving the status quo or imposing imperialistic foreign policy. In order to achieve the objective, classical realism use power balancing strategy such as containment and engagement.28
Now containment is a foreign policy pursued by U.S. during the Cold War in order to limits the spread of opponent‟s influence globally, in this case was to
27 Morgenthau, H. (1978). Politics among Nations. New York: Knoff. 28 Joshua S. Goldstein, supra note 37, p. 67 11 limit Soviet Union expansionism. The theory of containment was first proposed by U.S. diplomat George F. Kennan who found out that Soviet Union is an essential threat to United States. Meanwhile engagement is opposing containment strategy.
The writer found a key finding which is relatable with the research, which is economic engagement. Economic engagement is a policy which enables the opponent‟s economic improvement in order to change its behavior and also build bilateral relations. Economic engagement may be a way for two countries to be closer, economic ties could enhance the opponent‟s economic dependence. Economic engagement is conflicting with the economic sanctions; this economic engagement provides economic benefits for the opponent if the opponent wanted to change into the desirable political behavior.29
The History and Potential of Trade between Cuba and the US by Cassandra Copeland, Curtis Jolly and Henry Thompson explains about the history of trade between U.S. and Cuba, U.S. trade and investment have been important for Cuba. The authors believe that strong economic ties between the two countries will emerged and boost the regional economy. This journal reviewed the economic ties between U.S. and Cuba before the embargo and after the embargo.
In the first section the authors explain about the economic history between U.S. and Cuba from 1800s until 1959. Cuba was the colony of Spain in 1800s and U.S. managed good economic relationship with Cuba during that period.
U.S. annexed Cuba in 1989 after defeated Spain in Spanish-American War. After annexing Cuba U.S. improved Cuban sugar industry but the U.S. sugar beet farmers against the idea of Cuban annexation because they do not want to compete with Cuban sugar industry. Congress passed Teller Amendment telling U.S. to cancel Cuba annexation in order to protect U.S. beet sugar farmers. U.S. gave up annexing Cuba rather it supported Cuban independence in 1903 to avoid Cuba being intervened by other powerful countries.
29 Miles Kahler and Scott Kastner, supra note 94. 12
U.S. supported Batista dictatorship which resulted into Fidel Castro revolution and he succeed topple down Batista regime. Castro saw U.S. monopoly in many Cuban sectors as threat, he then seized the agricultural plantations. Castro also made close tie with Soviet Union ignited U.S. to end the relationship with Cuba and imposed embargo in the 1960s.
The second section reviews about Cuban trade relations under U.S. embargo. After Castro came into power he decided to nationalize U.S. assets in the country as the realization to achieve full independence. Knowing this U.S. withdrew arms and economic aid to Cuba. After U.S. left the country Soviet Union came to heal Cuban wound from the embargo.30
U.S. President Jimmy Carter actually planned to re-establish diplomatic relationship with Cuba since 1975 but Cuban intervention in African crises ruined the negotiation. U.S. tightens the embargo under President Reagan presidency. With stricter embargo Cuban agricultural production shrank down. In order to handle the problems Cuba broke up large farms and divided it into smaller cooperative farms in 1993. The country is against globalization in order to protect the state enterprises from competition.
The third section describes the possibility of trade potentials between U.S. and Cuba if the embargo is lifted. Cuba has quite big population which made it as an essential country for U.S. export activity. Cuba‟s agriculture exports complement U.S. needs but Cuba is poor in manufacture, U.S. foreign investment could help Cuba to be more developed. In the end the authors conclude that lifting embargo could be beneficial to both countries besides it would strengthen their economic ties.
The journal Normalizing US-Cuba Relations: Escaping the Shackles of The Past by William M. Leo Grande explains about the cooperation between U.S. and Cuba after the rapprochement. The author states that both countries‟ policy engagement will be more effective to enhance normalization. Cuban nowadays indicates that the openness towards normalization with US seem possible, Raul
30 Kost, 1998. 13
Castro has launched the reorganization of the Cuban economy in 2011 which shows that policy engagement with US will be succeed to solve the longstanding isolation between them.
US hostility policy proponents focused on how to unseat Castro to loosen its ties with Soviet Union as well as debates on whether policy engagement will be more beneficial to serve US national interests.31 President John F. Kennedy, President Gerald Ford‟s Secretary of State Henry Kissinger, and President Jimmy Carter addressed a goal to draw out Cuba from Soviet Union. Luckily after the end of Cold War Cuba is no longer supported by Soviet Union, in 1992 Cuban President Fidel Castro would not intervene the revolutionary mission abroad.32 Cuban revolutionary mission had ended due to lack of resources and Cuba wanted to repair diplomatic and economic ties with its neighbor.33 After that Obama personally thinks that Cuba is only a small country which poses no threat to United States.34
The normalization itself is not an easy process to be done. Many Cuban Americans opposed the idea to pursue normalization, the Cuban Democracy Act 1992 tightened economic embargo so the Cuban regime would fall after Soviet Union collapsed and Helms Burton Act which enacted the embargo into law. In 1991 87 per cent favored economic embargo meanwhile surprisingly by 2014 the percentage turned into 52 per cent opposed the embargo because they feel it is no longer effective.35
US goal is to bring democracy in Cuba, stated that US will normalize its relationship with Cuba if only the country had the willingness to shift into more democratic country.36 When US are focusing on how to bring democracy to the
31 These debates are chronicled in William M. LeoGrande and Peter Kornbluh, Back channel to Cuba: the hidden history of negotiations between Washington and Havana(Chapel Hill: University of North Carolina Press, 2014). 32 Tom Harvey, „Castro ends the export of revolution‟, Sun Sentinel, 16 Jan. 1992. 33 US Department of State, Patterns of global terrorism, 1993(Washington DC: Department of State, 1994), p. 22. 34 National Public Radio, „Transcript: President Obama‟s full NPR interview‟, 29 Dec. 2014. 35Guillermo Grenier and Hugh Gladwin, „FIU Cuba poll‟, 1993–2014, https://cri.fiu.edu/research/cuba-poll/. 36LeoGrande and Kornbluh, Back Channel to Cuba, pp.266-7. 14 country, major changes were undertaken by Raul Castro as the new leader of Cuba. US noticed those changes happened in Cuba that is why the policy of engagement between them seems more attractive rather than tightening economic pressure to topple down Cuban regime. A White House fact sheet explained Obama‟s new policy as a good way that it is better to encourage and support economic reforms in Cuba rather than contributing policies which will lead Cuba into failed country.37 Cuban economic reforms undertaken by Raul Castro give reasonable value to US as a visible partner to do trade and investment. However lifting economic embargo requires Act of Congress involvement, the congress will at least demanding Cuba to give compensation for each US properties which had been nationalized in the past yet Cuba will ask compensation for the humiliation done by US through economic embargo which took a half century long.
The book Democracy Delayed: The Case of Castro’s Cuba by Juan J. López focuses on evaluating Castro‟s regime types and also the effectiveness of economic sanction policy imposed by United States, explaining Cuba‟s regime endurance, and assessing U.S. economic embargo as a helping tool or as an obstacle to achieve democracy in Cuba. This book sub section contains an explanation of U.S. policies towards Cuba.
After Fidel Castro ascent to power, U.S. and Cuba relations was burdened. Different with the previous leaders, Cuba governance under Fidel Castro tried to eliminate U.S. influence in the country. Since then, the essence of U.S. policy towards Cuba highlight is U.S. willingness to oust Castro from Cuba‟s leadership. U.S. leaders imposed policy which seems appropriate to handle U.S.-Cuba relations. U.S.-Cuba relation is regulated upon U.S. policy of hostility which use embargo as a way to force political regime change in Cuba.
This book discussed about the essence of United States‟ policies upon Cuba since the beginning of diplomatic ties severed. According to this book, U.S. embargoed Cuba as a way to limit Cuban resources especially to Castro government so he would not spread communism in Latin America. Therefore this
37 White House United States, Office of the Press Secretary, „Fact Sheet: charting a new course on Cuba‟, 17 Dec. 2014. 15 embargo is not really significant to topple Castro. U.S. proposed several requirements to pursue bilateral normalization with Cuba, one of them is that Cuba should limit its dependence upon Soviet Union.38
United States‟ leaders have been tried several efforts to modify the embargo, either to ease the embargo or make it worse for Cuba. Started from Bush period, U.S. leisurely did nothing to increase or decrease the tension between the two countries. It was probably after Soviet Union declining in the post-Cold War, that Cuba posed no threat to United States.
During Clinton administration, the long standing policy of containment was no longer justifiable. Started from this point U.S. was no longer focus on Cuba international behavior but more focus on Cuba‟s domestic policies therefore human rights and democracy are the main point to justify U.S.‟ policy towards Cuba. Clinton rejected Helms Burton Bill to strengthen the embargo but relaxed travel restriction to Cuba instead, it was an implementation of Clinton‟s willingness to normalize with Cuba. Therefore Cuban air force shot down U.S.‟ aircraft on February 24 1996 which caused four American men killed, gave Clinton no option rather than signed Helms Burton‟s codification.39
Clinton was actually sympathetic with the anti-embargo movement who demand for the embargo to be lifted but his willingness to dismantle the embargo restrained by the Congress. However Clinton administration continuously improved U.S. and Cuba relations, such as implemented people-to-people policy. In 1998 Clinton permitted direct passengers and cargo flight to Cuba, and cash remittances by Cuban Americans to their relatives. Clinton announced several modifications upon embargo in order to improve Cubans and promoting democracy. The author stated that Clinton‟s people-to-people policy is a form of Clinton‟s effort to ease the embargo rather than an effort to lift the embargo.40
I find this book is relatable with my topic because it focuses on U.S. policies upon Cuba, also about the U.S.‟ leader‟s efforts to either strengthen or weakening
38 Lopez, J. (2002). Democracy Delayed. Baltimore: The John Hopkins University Press.
39 Ibid. 40 Lopez, J. (2002). Democracy Delayed. Baltimore: The John Hopkins University Press. 16 the embargo to Cuba. U.S.‟ main intention was to isolate Cuba from the rest of the world so that Cuba will not be able to spread communism values and U.S.‟ leaders had done several measures including armed or military actions to topple down Castro regime which endanger U.S.‟ interests. Meanwhile after the fall of Soviet Union, U.S. became more focus on Cuba‟s domestic policies instead of how Cuba was exercising its international behavior. Several measures had been taken by the executive bodies in order to modify the embargo to Cuba. However the enacted embargo has failed to implement U.S.‟ goals to chase Castro away and the embargo are also still there.
The book has a sub section which is focused on U.S. embargo to Cuba. The book elaborates the explanation about the embargo and its relevancy in today‟s world. The salient objectives of the embargo are to change Cuba‟s policy, to show the disapproval of Cuba‟s poor human right implementation, and to address Cuba‟s transition to be a democratic country. The author of the book is trying to look whether the embargo is working in these three objectives‟ perspective. Further explanation about this matter is presented.
First of all, economic sanction is imposed to change the opponent‟s policies because the opponent‟s policies are not accepted by the sanctioned. The author argues that it is nearly impossible for U.S. to influence Fidel Castro to conduct political liberalization and respect human rights. U.S. imposed embargo to Cuba in order to limit the resources available for Fidel Castro, to weakening the Castro regime so democracy can be developed. One of the strategies is to limits Castro access to financial resources especially in tourism by Americans to Cuba. There is an Act which regulates the U.S. embargo to Cuba, Helms Burton Act contains U.S. strong sanction upon Cuba, U.S. preparation to bring democracy in Cuba, and a warning for trade which involves U.S.‟ properties confiscated by Cuba. The Helms Burton was originally intended to bring about democracy and human rights in Cuba meanwhile it seems no longer justifiable.
Engagement could be a better indicator to promote regime change in Cuba, engagement could also help U.S. to achieve the end in Cuba. The policy of hostility had failed U.S. to bring change in Cuba so that engagement seems like to
17 be a better solution right now. Cuba was not isolated from the rest of the world, in fact, it keeps alive for decades and Castro is still there. This matter clearly shower the failure of the policy mentioned to transform Cuba‟s regime. The proponents of this engagement strategy conveyed that engagement could bring foreigners to Cuba, they can directly contact Cubans‟ dissidents, exercise the freedom of speech, and slowly urge Cuba to have political transformation.
Economic sanction is used as an instrument to have democratic transition in the opponent country. Major literatures or research conveyed that economic deterioration or stagnation leads into the demise of dictatorship regime because the decrease of living standard economically will alleviate the public trust to the ruling government.41
I.9. Research Methodology
Research is a set way of thinking, conducting research means the writer should be fully committed to do further exploration, to understand the topic, explain the observation as well as draw a conclusion. Doing research develops logical and rational thinking and it could develop analytical thinking. Meanwhile research methodology is a set of instruments to answer the research question. Therefore in order to find the answer the writer should observe, question, test, explore, and understand the topic thoroughly.42
I.9.1. Qualitative Research
This research is based on political science and in coverage of International Relations field of study, this research focus on bilateral relations and diplomacy. In order to conduct a proper research the writer picks qualitative method. Qualitative research is a research method which focuses on interpretative and naturalistic approach to the things that matter in the research. Therefore qualitative research examines, analyzes and makes interpretation regarding to the nature of the phenomena without
41 Haggard and Kaufman, The Political Economy of Democratic Transitions,33–34. 42 Kumar, R. (2014). Research Methodology: a step by step guide for beginners. California: SAGE Publications. 18
concerning the mathematical models. Several things such as the detailed information about the case study, personal experience and the patterns of relationship are also provided in this method.43
The characteristic of good qualitative research will be explained below:
a. Qualitative research applies good inquiry, means that the writer identifies and conducts study about the identified topic. b. The writer investigates the accuracy of the investigated topic through data collection and data analysis. c. The writer gives a clear insight about the topic. The writers should be fully committed to spend a long time and find complex resources to verify the problems identified. The reason why the writers chose qualitative research is due to the research question which begins with how to seek the detailed information about the ongoing situation of the problems identified. The writer used qualitative research to explore the theories applied on the topic. Problems‟ exploration is also needed in order to obtain clearer insight about the topic. Qualitative research can give the readers the essence of being involved in the story, one of the main reasons of why this research method is applied. Last but not least the writer chose qualitative method to position herself as a learner.
I.9.2. Data Collections
In order to support the research, the writer used several methods to collect the data. Therefore books, journals and internet are considered as the main sources which are beneficial to data collection which related with the topic.
Library research
The writers seek books which are related with the topic identified in this research in the President University‟s library. It is very beneficial
43Denzin, N., & Lincoln, Y. (1994). Handbook of Qualitative Research. Thousand Oaks, Sage Publications. 19
for the writer to find the theoretical framework, the historical background as well as other related information.
Internet Research
Internet is the most common instrument to complete the data. The writer browsed the data from internet through several credible web sites.
a. Official Web Site The primary source mostly cited from the White House web site (www.whitehouse.gov) to keep an update regarding to the topic, find official statements, and press release launched by White House government regarding to this matter.
b. The Scholars Journal To find supporting data the writer also adopted data from the scholar‟s journals mostly from E-Resources from www.csis.org, www.american.edu and www.jstor.org.
c. The Online News Web Site The writer used international news web site to complete the data, the writer tried to find the media‟s perspective regarding to the topic.
I.10. Thesis Structure
Chapter I: Introduction
This chapter contains the basic ideas of the research so the readers could get basic insight about the topic. It explains what kind of research is being investigated, the reasons why the research is being conducted and how it contributes to the readers about the topic that is being investigated. This chapter encompasses background of the study, problems identified, theoretical framework, scope and limitations and literature review and research methodology.
20
Chapter II: Diplomatic Relations between United States - Cuba
This chapter provides the historical background of U.S. and Cuba. The objective is to give an insight about the factors contributed to the diplomatic rupture between U.S. and Cuba. Several events that happened during U.S. policy of hostility upon Cuba are presented in this chapter.
Chapter III: United States – Cuba Normalization under President Barack Obama Administration
This chapter elaborates a major shift undertaken by U.S on its relations with Cuba which is normalization. The factors which are contributing to the normalization under President Obama administration and the policy of engagement are presented as well.
Chapter IV: The Implementation of United States - Cuba Engagement Process
This chapter provides the analysis on the implementation of U.S.- Cuba engagement process according to realism perspective. The main concern will be the bilateral relations thaw initiative conducted by President Obama since he came into office in 2009-2016. Therefore this chapter elaborates comparison between President Obama first and second administration and its impacts towards U.S. interest in Cuba.
Chapter V: Conclusion
This chapter contains evaluation in order to conclude the entire discussion elaborated in the previous chapter. We will see that President Obama policy of engagement is focused on easing travel and remittances restrictions in order to stimulate democracy and human rights in Cuba through people-to-people contact between Americans and the Cubans.
21
CHAPTER II
DIPLOMATIC RELATIONS BETWEEN UNITED
STATES - CUBA
II.1. Cuba’s History of Recognition
Independence and state sovereignty are definitely important for Cuba. Cuba several times involved in the war of independence. Spain made Cuba as the hub for slavery trade and export sugar and coffee. Cuba‟s independence war peaked in the end of 1980s, caused Cuba being independent with U.S. backing.
Again, Cuban nationalists‟ attempted war on independence against Spain in 1895. The war itself crashed Cuba‟s economy sector, commerce shrank due to the violent crisis and Cuba was in danger. U.S. did not think that Spain would succeed to negotiate peace. U.S. also doubted Cuba could restore the economy. Spanish government made no progress to restore the peace and stability in the island and U.S. could not watch American interests crashed down. The condition got worsens thereby U.S. proposed to involve in the war between Cuba and Spain. U.S. declared war against Spain on April 25, 1898.44 U.S. defeated Spain and sent representative to discuss about ending the conflict in Paris.45
The meeting ended with Paris Treaty and the disposition regarding to Cuba is written in the Article I and Article XVI. The Paris treaty gave U.S. provisional right to control over Cuba. Under Article I Spain detached the claims of sovereignty to Cuba meanwhile Cuba will be occupied by U.S. after Spain left the country. The Article XVI explains that U.S. is responsible to advise the government establishment in Cuba after the occupation ended.46
44 Adams. (n.d.). War Between the United States and Spain. Washington: House of Representatives. 45 Guggenheim, 51. 46 Treaty of Paris, http://www.homeofheroes.com/wallofhonor/spanish_am/18_treaty.html 22
U.S. finally controlled Cuba on January 1, 1899. U.S. agreed to make Cuba independent in 1902 but it should attain the right to intervene Cuba in order to protect its interest in the island after independence. U.S. got the right to inaugurate government in Cuba and it was the root cause of Cubans‟ hatred towards United States. U.S. selected person to lead the island and specialized the leaders that could fulfilled two requirements which are Cuba‟s stability and protect United States‟ interests in Cuba.
Cuba is independent in 1902 with United States‟ assistance. Due to the limited sovereignty, Cuba can be independent but with several requirements which is written in the Platt Amendment 1901. The Platt Amendment 1901 allowed U.S. to interfere Cuba. Stated in the Article III that U.S. has the right to interfere in order to ensure that Cuba‟s government protects Cubans life and properties, and Cuba should surrender Guantanamo Bay to the United States.47 Cuba leased Guantanamo Bay in 1903 to U.S. and U.S. built naval station in the same year.48
There is no way for Cubans to deal with the Platt Amendment because it is only beneficial for United States. Cubans thought that independence means sovereignty and freedom to determine their own lives without any foreign intervention including United States. It is irrational for Cubans to allow U.S. to place or displace Cuban‟s leaders as U.S. wish, to let U.S. seize lands for naval bases, or to determine with whom Cuba has treaty with. Cuban needs to preserve its independence even if the sovereignty is limited.49
II.2. United States and Cuba Relations during Cold War Period
Cuba had no other options except to accept the prerequisites that is proposed by U.S. in the Platt Amendment 1901 to be independent. After being independent in 1902, U.S. keeping its presence in Cuba, U.S. relations with Cuba
47 Platt amendment. http://www.fordham.edu/halsall/mod/1901platt.html 48 Cuba Fast Facts. (2016, August 31). Retrieved November 16, 2016, from CNN Web Site: www.cnn.com 49 Bernis, 126. 23 continued to grow and strengthen. U.S. assisted Cuba in political, financial, and even it assisted Cuba‟s military; providing weapons and training for the Cubans in order to fight against Communism. United States‟ domination in Cuba was inevitable.50
II.2.1. Cuba Revolution 1959
Cuba is an independent country but the sovereignty is interfered by U.S. for a long time. The Platt Amendment 1901 allowed U.S. to interfere Cuba‟s domestic affair. U.S. had the right to preserve Cuba‟s independence and deserves the right to considerate the best leaders who could pledge to protect peace, security, and prosperity in Cuba. Cubans could not even determine the President according to their will even when the election was already there. Frequently U.S. supported authoritarian leader to lead Cuba even though he clearly disadvantaged Cuba.51
President Batista‟s first term ended in 1944 and he came back to the presidency in 1952. President Batista was an anti-communist therefore he gained very much support from United States. Despite of his flaws in running the governance, he could shut the opposition so they did not interrupt his regime.
However a Cuban lawyer and activist Fidel Castro had desire to overthrow him from the presidency. He accused President Batista for corruption and political tyranny. He watched the economic disparity in the island which caused by dictatorship leaders who only sought personal benefits. During his college he was very much attracted to nationalism, anti-imperial, and socialism.
He was triggered to bring social justice in Cuba, he had willingness to expose President Batista regime‟s corruption in order to achieve equality in Cuba. He blamed President Batista for the social disparity and accused him as a corrupt leader but his statement got rejected
50 Holmes, A.-M. (2009). The United States and Cuba 1898-1959. 51 Platt Amendment. (t.thn.). Retrieved February 27, 2017, from http://www.fordham.edu/halsall/mod/1901platt.html 24
by Cuban court. Therefore he thought that the only way to overthrow President Batista could be achieved through armed revolution.52
Fidel Castro along with his brother, Raul Castro, and his army attacked President Batista in 1953 but he failed to topple President Batista. He led guerilla movement to overthrow President Batista and the army consisted of 160 fighters. Fidel Castro flew to U.S. and met Che Guevara, a Marxist revolutionary and he advised Castro to bring revolution in Cuba. Therefore during his exile period he organized another movement to topple President Batista called the 26th of July movement.53
President Batista continued his support to protect U.S. interest in Cuba especially United States‟ position as the largest single market for Cuban sugar, however President Batista‟s administration was in danger due to the insurrections.54 The continuous supports from U.S. towards President Batista to tackle the rebellions has made Fidel Castro became very anti-American. The 26th of July movement came out as the final victory, Fidel Castro and his army marched and arrived in Havana on January 8, 1959.55
Fidel Castro or Fidel Alejandro Castro Ruz was the next President in Cuba replaced President Batista. President Castro was a historical Cuban‟s leader and he brought so many changes in the country, especially towards Cuba relations with United States. President Castro was the longest sitting president with almost 50 years term in Cuba, he passed away on November 25, 2016 due to his illness. He became the communist
52 biography. (n.d.). Biography of Fidel Castro. Retrieved November 28, 2016, from About Web site: about.com 53 Julia Sweig. Inside the Cuban Revolution: Fidel Castro and the Urban Underground . MA: Harvard University Press, 2004, 6. 54 Editors note, FRUS 1955-1957, Volume VI, 841 55 Sanchez, R., Curtis, E., & Klapheke, R. (2015, July 28). Remembering the Cuban Revolution. Retrieved November 28, 2016, from MSNBC Web Site: www.msnbc.com/msnbc/remembering- fidel-castro-and-the-cuban-revolution/slide1 25
icon in Latin America. President Castro was seen as a regional threat for U.S. due to his proximity to communism.56
President Castro gained many supports from Cubans, he promised that he would improve Cubans‟ livings, he would restore the Cuba 1940 constitution, he would run a transparent regime, and enhanced political liberty. But the outcome turned differently and he pursued radical policy instead. One of his radical policy practices was the nationalization of U.S. private commerce and industries and seized agricultural estates. His sudden movement and his rhetoric about anti-American were threats for U.S.
As the national revolutionary, President Castro had brought education, lessens the level of illiteracy in Cuba, and gave free access to medical health. Therefore the people in Cuba should pay it with their freedoms; he pushed down democracy and political freedom, locked up dissidents and political opponents. President Castro regime has been doing full censoring method to the media so they would not publish unauthorized news. Internet access was also limited due to high cost and restriction.57
President Castro had been upholding a regime that allows no election and considering political dissents or opposition as enemy that deserves to be sentenced, murdered, or tortured. President Castro continuously suppressed the people, controlled all medias and limited access to information sources. The anti-capitalism influence was widespread over the island and he also spread the rhetoric of anti-America to the people.58
56 Encyclopaedia Britannica. (n.d.). Fulgencio Batista y Zaldivar. Retrieved December 1, 2016, from Britannica Web Site: https://wwww.britannica.com/biography/Fulgencio-Batista 57 Dearden, L. (2016, November 26). Fidel Castro: Cuban leader condemned as 'dictator' who presided over excecutions and human rights abuses. Retrieved November 29, 2016, from Independent UK Web Site: https://www.independent.co.uk/news/people/fidel-castro-dies-dead- cuba-dictator-communism-human-rights-abuses-excecutions-freedom-censorship 58 DePalma, A. (2016, November 26). Fidel Castro, Cuban Revolutionary Who Defied U.S., Dies at 90. Retrieved November 29, 2016, from The New York Times : nytimes.com/2016/11/26/world/americas/fidel-castro-dies.html 26
II.2.2. United States Embargoed Cuba
Embargo was the practice of U.S. policy of hostility undertaken by U.S. to isolate Cuba and limited President Castro access to the resources. U.S. embargo consists of several components: restriction on travel to and from Cuba and on the sale of goods and service, bans on investment in business ventures, constraints on immigration, limits on journalist and scholars going to Cuba, and ban in money remittances.
II.2.2.1 Prelude to United States Sanction towards Cuba
Adoption of One Single Party in Cuba
President Castro showed his interest towards Communism and established the Partido Communista de Cuba (PCC). He did not obviously declare that Cuba was ruled under communism system neither claims himself as Communist. President Castro regime also tightened the control over media by implementing tight censorship system.59
Right after revolution 1959 happened U.S. imposed embargo to Cuba and broke the diplomatic ties with Cuba two years after the revolution, in a time when Cuba severely needed assistance in order to stabilize the country. Soviet Union came to fill the emptiness and Soviet Union pouring its money to Cuba, bought bulk of Cuba‟s sugar production after U.S. cancelled the import, and it exported the goods that was demanded by Cuba.
Partido Communista de Cuba (PCC) or Communist Party of Cuba in English was launched in 1965, it was the only party who were allowed to operate in Cuba according to Cuba constitution of 1976. PCC was originally founded in 1925 but changed into People‟s
59 The Guardian. (n.d.). Retrieved December 1, 2016, from IPP Media Web site: www.ippmedia.com 27
Socialist Party (Partido Socialista Popular; PSP) from 1944 until 1961.60
The communist party merged with Fidel Castro‟s 26th July movement and converted it into the Integrated Revolutionary Organization (ORI) to overthrow President Batista‟s regime. The membership increased and it changed into United Party of the Socialist Revolution before it finally reformed into Communist Party of Cuba in 1965.61
U.S. Assets Expropriation by Fidel Castro Administration
The 1959 revolution did not only hand over the power to control the country to Fidel Castro. Cuba before revolution 1959 was flooded by American businesses; tourists could stay in American-owned hotels and they could take money in American-owned banks. American- owned petroleum refineries, sugar factories, mines, and telecommunication companies that control the country‟s communication lines.62
President Castro tried to re-stabilize the country after the revolution. Castro seized U.S. properties in order to nationalize Cuban economy. Several United State-owned assets such as vacation houses and bank accounts for wealthy person were also seized. Cuba also confiscated industries which belonged to American ownership such as sugar factories, mines, oil refineries, Coca Cola, Exxon, and Boston Bank. Cuba seized all of them without giving any compensation to United States.63
60 The Editors of Encyclopædia Britannica. (n.d.). Communist Party of Cuba. Retrieved December 2, 2016, from Encyclopædia Britannica Web Site: https://www.britannica.com/topic/Communist- Party-of-Cuba. 61 Ibid 62 Neyfakh, L. (2014, April 18). Cuba, you owe us $7 billion. Retrieved December 3, 2016, from Boston Globe Web Site: http://www.bostonglobe.com 63 Neyfakh, L. (2014, April 18). Cuba, you owe us $7 billion. Retrieved December 3, 2016, from Boston Globe Web Site: http://www.bostonglobe.com 28
Cuba-Soviet Union Relations
President Fidel Castro focused on how to make Cuba independent and developed. He tried to diversify its trading partner to gain more resources from Soviet Union. U.S. took almost full control in Cuba‟s trading sector for a long time. Therefore President Castro new policy which had Soviet Union as the new trading partner has made U.S. anxious.
Cuba sought Soviet Union economic assistance to improve Cuba social and economic development. The economic ties between Cuba and Soviet Union alarmed U.S. interest in Cuba. In the middle of 1960 U.S. limited sugar import quota which humiliated Cuba‟s sugar export. United States‟ sugar producers began to stop buying Cuban sugar. Soviet Union came at the right time and purchased Cuba‟s sugar quota which is impacted from U.S. quota. Soviet Union purchased the whole quantity not to satisfy its need but to pull Cuba closer to its side.64
II.2.2.2. The Embargo Enforcement into Law
Cuban Democracy Act 1992 was proposed by U.S. Congressman Robert Torricelli to push democracy and push Cuba to behave accordingly with international standard for human rights. The act limited travel to Cuba and family remittances to Cuba. There are some key findings which pioneered this act. President Castro violated the international human right standard; the regime had no tolerance relating to the freedom of speech, press, and the right to assembly. President Castro regime is not democratic, political openness was relatively slow, and any political opposition would end up in in prison or exile.
64 Wolfe, L. (2010, December 13). Cold War Havana: Prelude to American Sanctions. Retrieved November 28, 2016, from Cold War Studies Web Site: https://www.coldwarstudies.com 29
The act allowed export on medicine and humanitarian good in order to support the Cubans, the export to help the Cubans is allowed. However the act is strictly prohibited individual remittances from U.S. citizen to finance Cubans, travel to Cuba is also limited in order to ensure that Castro would not get access to the U.S. currency through remittances.
II.2.3. Bay of Pigs Invasion
Cuba was being one of the significant actors during the Cold War after the revolution 1959 happened. Cuba under President Castro showed its proximity towards Soviet Union and communism. U.S. welcomed the new revolutionary leader and invited them to collaborate with United as the previous leaders used to be. Therefore President Castro directed policy which disadvantaged United States.
U.S. launched Bay of Pig Invasion on April 17, 1961 and it only occurred within two days. U.S. Central Intelligence Agent (CIA) formed and trained Democratic Revolutionary Front which consisted of the Cuban exiles who against Cuban revolution. President Castro posed a threat for Latin America due to its proximity with Soviet Union. Bay of Pigs was an effort to knock down President Castro. The failure of U.S. Bay of Pigs Invasion strengthened Cuba ties with Soviet Union. 65
II.2.4. Operation Mongoose
Operation Mongoose is intended to fix the Bay of Pigs Invasion failure which is to remove Castro and his Communist influence from Cuba. The operation consisted of political, psychological military,
65 Office of The Historian. (n.d.). The Bay of Pigs Invasion and Its Aftermath APRIL 1961-October 1962. . Retrieved December 3, 2016, from Histoy State Gov Web site: https://history.state.gov/milestones/1961-1968/bay-of-pigs 30
sabotage, intelligence, and assassination attempt to the key Cuban political leaders including Castro.66
The operation is intended to destabilize the Castro regime. Operation plans were to be set including the plan to spread anti-Castro propaganda, plan to formed militant opposition groups, and the establishment of guerilla bases. Those plans were directed to launch military intervention in Cuba on October 1962 but the plan of military operation cancelled.
II.2.5. Cuban Missile Crisis U.S. failed certain attempts to eliminate Castro from Cuba‟s government. Castro enjoyed victories from U.S.‟ bitterness and gained even more supports from Soviet Union. Moreover the tension between U.S. and Cuba drastically increased. Castro became closer with Soviet Union‟s premier Nikita Khrushchev, and in July 1962 both of them agreed upon the placement of Soviet Union missiles in Cuba.
The missile installment in Cuba was an obvious threat to United States. Soviet Union constructed few missiles sites in Cuba, the tension got worse after U.S. found out the news. President Kennedy directed to implement naval quarantine in Cuba on October 1962 as a response for Soviet Union.
66 Office of The Historian. (n.d.). The Bay of Pigs Invasion and Its Aftermath APRIL 1961-October 1962. . Retrieved December 3, 2016, from Histoy State Gov Web site: https://history.state.gov/milestones/1961-1968/bay-of-pigs 31
Figure 1: The missile launch site at San Cristobal, Cuba
Source: www.history.state.gov/milestones/1961-1968/cuban-missile- crisis
The Cuban Missiles Crisis happened on October 1962, it was a time when U.S. and Soviet Union had tension which nearly close to nuclear conflict. The picture above was taken by United States. U-2 aircraft which clearly showing the construction of medium and inter- medium range of ballistic nuclear owned by Soviet Union in Cuba.
Evocative to the Monroe Doctrine, that any threat possessed by Cuba towards the Western Hemisphere should be regard as an attack by Soviet Union to United States. Khrushchev responded that the U.S. quarantine was an act of aggression. Nevertheless President Kennedy opened up from diplomatic channel to settle this down. Both countries dealt to make agreement. The agreement would be Soviet missiles removal from Cuba and U.S. should not invade Cuba anymore.67
67 Office of The Historian. (n.d.). The Cuban Missiles Crisis, October 1962. Retrieved December 4, 2016, from History State Gov Web site: https://history.state.gov/milestones/1961-1968/cuban- missile-crisis 32
II. 3. Chapter Conclusion
Understanding the historical background of US.-Cuba relations in the past is very important to know about the root causes of diplomatic rupture which lasted for more than 50 years. U.S. intervention is begun since Cuba was part of Spain, U.S. involved in the Spanish-American War and fought for Cuba‟s independence. U.S. gained victory and made Cuba independent in 1902 by giving limited sovereignty to Cuba.
The Platt Amendment was being the basis of U.S. intervention in Cuba. U.S. domination was very thick that U.S. even had the right to place and replaces the Cuban leaders, U.S. prioritized the leaders who could immediately ease U.S. interests and dominance in Cuba. The revolution happened to overthrow President Batista regime which is called revolution 1959. The revolution is led by Castro and he gained victory in 1959.
President Castro‟s radical policy contradicted U.S. interests in Cuba; He spread the rhetoric of anti-American, expropriated U.S. assets without giving any incentives, even worse that he showed his proximity upon Soviet Union and Communism. Afraid that President Castro and his Soviet Union counterparts would influence Latin America with Communism, U.S. imposed policy of hostility and broken the diplomatic ties during 1960s. U.S. even embargoed Cuba as a strategy to expel President Castro from the office.
During Cold War period, U.S. considered Cuba as a foe along with Soviet Union therefore U.S. tried to isolate Cuba. Most of U.S. efforts to undermine Castro were in the form of coercive actions; Cuban Missile and Operation Mongoose.
33
CHAPTER III
UNITED STATES - CUBA NORMALIZATION UNDER
PRESIDENT OBAMA ADMINISTRATION
III.1. The Background of United States-Cuba Normalization
United States and Cuba severed the diplomatic relations since 1960s. Cuba had been ruled by President Fidel Castro since the diplomatic ties broken in 1961 until 2008, he replaced by his brother Raul Castro due to his illness. However U.S had changed its President several times and the policy to keep hostility with Cuba were still implemented. President Obama came into office as United States‟ new President in 2009 and he is considered as the agent of change, especially towards United States-Cuba relations. Different with his ten predecessors, he initiated to have relations thaw with Cuba instead.
III.1.1. The failure of policy of hostility
U.S. policy towards Cuba was driven by how to undermine the Castro regime. For almost a half of century, U.S. tried to isolate Cuba in both economically and politically. After the Cuban revolution 1959, U.S. imposed policy of hostility towards Cuba. This hostility policy used the containment strategy and is objected to balance the power upon the opponent. Containment is a foreign policy pursued by United States during the Cold War in order to limits the spread of opponent‟s influence globally, in this case was Soviet Union expansionism. The theory of containment was first proposed by United States diplomat George F. Kennan who found out that Soviet Union is an essential threat to United States.68
68 Pinder, C. C., & Moore, L. F. (1980). Middle Range Theory and the Study of Organizations (United States . Springer. 34
U.S. imposed hostility policy upon Cuba due to Cuba‟s proximity with the Soviet Union during the Cold War. U.S. was also afraid if Cuba and Soviet Union would spread communism in the Latin America region. Therefore U.S. embargoed Cuba as a way to limit Castro regime to the available resources. U.S. also did several actions to expel Castro from the office; Cuban Missile Crisis, Operation Mongoose, etc. U.S. enterprises, individual, or groups are prohibited to do trade or to travel to Cuba since the diplomatic severed in 1960s.69
The embargo is mainly the practice of U.S. hostility policy itself. Americans were not allowed to trade with, invest in, or travel to Cuba due to the embargo. The objective of foreign policy is to achieve the national interest, U.S. and objective in Cuba was to see the demise of Castro and its Communism in Cuba so that Cuba could transform into a democratic country which could assure better life for the Cubans. However the embargo was indirectly deprived the Cubans prosperity and it brought a little effect so it is failed.70
“It is clear that decades of U.S. isolation of Cuba have failed to accomplish our enduring objective of promoting the emergence of a democratic, prosperous, and stable Cuba.”71
The hostility policy is failed to advance positive changes in Cuba, Cuba is still governed by the Castro and it is still implemented Communism. Eventually the policy was justifiable during Cold War because Soviet Union and its communism was United States‟ adversaries in the past so that U.S. was afraid if Castro extended the ideology in Latin American region which would disrupt U.S.‟ influence in the region. However Cuba is no longer Soviet Union‟s companion and the Soviet Union‟s communism had fall in 1991. Cuba is only a small country which
69 Griswold, D. (2005, October 12). Four Decades of Failure: The U.S. Embargo against Cuba. Retrieved December 6, 2016, from CATO Institute Web site: https://www.cato.org/publications/speeches/four-decades-failure-us-embargo-against-cuba 70 Ibid. 71 Office of the Press Secretary. (2014, December 17). Statement by The President on Cuba Policy Changes. Retrieved October 23, 2016, from The White House Web site: www.whitehouse.gov 71 Holmes, A.-M. (2009). The United States and Cuba 1898-1959. 35
poses no threat for U.S. or regional security. Those matters could be the considerations to ensure further normalization with Cuba.72
III.1.2. Cuban-American support
Huge exodus wave had happened from Cuba to U.S. in the past. Cuban exiles fled from Cuba after the revolution happened in 1960s, it consisted of Cuban middle and upper classes that afraid of Castro would spread communism in the country. Some of them left their properties in Cuba because they had no idea that Castro regime would last long. Apparently Castro was being strict and seized all the properties belong to the Cubans who left the island. The second mass exodus happened in the middle of 1980 called Mariel Boatlift. Approximately 125,000 Cubans left the country and came to United States.
The refugees are called Cuban-American and many of them live in Miami, Florida. People who left the country during the old times tend to be more conservative. These people are the supporters of U.S. policy of hostility because they still have grudge for Castro. They opposed any relaxation of U.S. embargo to Cuba and asked U.S. to tighten the sanction instead.73
These people have quite strong influence in Florida and this community is the third largest number of electoral votes. They are significantly influencing U.S. policy toward Cuba. Surprisingly the earlier generations of Cuban-American favor U.S. to re-establish bilateral relations with Cuba. They considered U.S. hostility policy as a failure so that U.S. should reconsider its policy towards Cuba.74
72 Griswold, D. (2005, October 12). Four Decades of Failure: The U.S. Embargo against Cuba. Retrieved December 6, 2016, from CATO Institute Web site: https://www.cato.org/publications/speeches/four-decades-failure-us-embargo-against-cuba 73 Japan Times Editorials. (2014, December 21). Ending 50 years of failure in Cuba. Retrieved December 6, 2016, from Japan Times Web site: www.japantimes.co.jp 74 Japan Times Editorials. (2014, December 21). Ending 50 years of failure in Cuba. Retrieved December 6, 2016, from Japan Times Web site: www.japantimes.co.jp 36
In 1991 87 per cent Cuban-Americans supported U.S. decision to impose economic embargo upon Cuba. Another survey is conducted in 2014 towards 1000 Cuban-Americans and surprisingly the percentage turned 52 per cent opposing the embargo and they wished that the economic sanctions towards Cuba can be lifted.75
III.1.3. Cuba under President Raul Castro
President Fidel Castro stepped down from presidency and handed over the power to his brother Raul Castro due to his illness in 2006. Raul Castro has been acting as the President in Cuba replaced his brother. Raul Castro conveyed his willingness for economic reform in Cuba and showed his openness for warming talk with U.S. President after President Bush administration ended. He had been hoping that the next U.S. President could wisely eliminate the policy which is no longer justifiable to Cuba. President Raul Castro also opened to have better relations with United States.76
Raul Castro also asserted that he will reform Cuban economy after he formally took over the presidency. Raul Castro conveyed that Cuba must lessen its import and produce more foods. He also opened for more foreign investment and tourism to boost the country‟s economy. He was looking forward to U.S. 2008 election to seek bilateral normalization.
Cuba under Raul Castro has made quite significant economic development. Raul Castro put economic development as a vocal point of his administration. Cuba heavily depended on foreign assistance especially from Venezuela and China. The only way to survive from economic crisis is that Cuba needs to lessen its import from foreign countries. Cuba
75 (Grenier & Gladwin) 76 Israel, E. (2007, July 26). Raul Castro offers reforms, talks with U.S. . Retrieved December 4, 2016, from Reuters Web site: www.reuters.com/article/idUSN2641844720070726 37
imported more than 70 per cent of national consumption. Therefore Cuba is in dire need to boost its agricultural productivity to lessen the import.77
Raul Castro also permitted private-owned-restaurants to be operated in Cuba. His goal was to foster the country‟s workforce and transferred it into private sector by 2015. The government could impose and collect taxes from them. He believed that modernization can secure the country‟s economy.78
“The revolutionary government is willing to advance toward the relations normalization, encouraging cooperation and policy coexistence in mutually beneficial way, while contributing to the peace, security, and development.”
President Raul Castro is more open to bilateral normalization with U.S. rather than his brother. Raul Castro has waited for the new U.S. government to come in 2008 and produce policy which could replace the policy of hostility. He is committed to re-establish diplomatic relations with U.S. if only U.S. could lessen its arrogance.79
III.2. United States-Cuba Bilateral Normalization
National Security Agency (NSC) was responsible for the policy coordination and implementation. The path to achieve final decision in determining a foreign policy can be gained through presidential forum. President Obama and his aides held a presidential forum in the White House considering about bringing back U.S. Cuba normalization initiative as one of the priorities during his second term. The first forum held to seek the potential to re-establish the relations with Cuba.
77 Levy, A. L. (2016, July 30). 10 Years of Cuba Under Raul Castro: Eye on Economic Development. Retrieved December 8, 2017, from Telesur TV Web site: http://www.telesurtv.net/english/opinion/10-Years-of-Cuba-Under-Raul-Castro-Eye-on- Economic-Development-20160730-0024.html 78 Rainsford, S. (2012, January 12). Raul Castro's Cuban reform 'without haste'. Retrieved December 8, 2016, from BBC Web site: http://www.bbc.com/news/world-latin-america-16529531 79 Reuters in Havana. (2015, July 15). Raul Castro seeks to put past behind Cuba and peacefully coexist with US. Retrieved December 8, 2016, from The Guardian Web site: https://www.theguardian.com/world/2015/jul/15/raul-castro-cuba-us-barack-obama-diplomatic- ties 38
President Obama specifically appointed The Honorable Benjamin J. Rhodes, Assistant to the President and Deputy National Security Advisor for Strategic Communications to handle the normalization plan with Cuba since 2012. NSC conducted research to the Cuban-American in Miami to find out the public response upon the current U.S. relations with Cuba.
The path to have normalization with Cuba is formulated here in this department. Foreign policy is objected to serve U.S. interests however policy of hostility failed to serve U.S. objective to see political transformation in Cuba. The policy did not achieve U.S. interest to advance democracy and human right values in Cuba. However the new framework to address U.S. and Cuba relations is needed beforehand. The failure of policy to isolate Cuba stimulated the consensus to warm the ties with Cuba, the poll of Cuban- American who favors to re-establish bilateral relations between U.S.-Cuba turned into 52 per cent.80
The broken relations had been there for such a long time, it means Cuba has quite strong determination to keep on its belief since 50 years ago. Cuba was persistent to prove that the country could grow even under U.S. sanctions therefore the idea of normalization is doubted. NSC launched several efforts to convince the Cuban government that the policy to isolate each other has no point at all. The secret talks between U.S. and Cuban government is held for 18 months since 2013.81
There were nine secret talks led by this department, the talks are objected to advance normalization. After having several contemplations to address the differences between them, normalization initiative is agreed by both parties. In the connection, the normalization with Cuba itself was the fruit of NSC work. With the back up from the Cuban-American the normalization is
80 (Grenier & Gladwin) 81 White House: Cuban leaders didn’t want to change. (2016, November 3). Retrieved January 13, 2017, from Politico Web site: http://www.politico.com/story/2016/03/white-house-cuba- normalization-220639 39
formally announced a year after the department launched secret talk effort with the Cuban counterpart.82
The highlight was the normalization itself so this department provides the relations framework by conducting certain efforts to make normalization comes true. This department also continuously provides reasonable advice for the executives to implement the engagement policy in accordance with their roles and responsibilities.
“In the most significant changes in our policy in more than fifty years, we will end an outdated approach that, for decades, has failed to advance our interests, and instead we will begin to normalize relations between our two countries. Through these changes, we intend to create more opportunities for the American and Cuban people, and begin a new chapter among the nations of the Americas.”83
President Obama initiated the normalization plan since he got elected in 2008. He is working to fulfill his pledge during presidential campaign that U.S. would achieve its goals in Cuba, which is to improve liberty and human right standard through different approach. U.S. had been pursuing hostility policy to Cuba however it is failed to advance U.S. goals in Cuba, therefore President Obama decided to re-establish the broken relations instead of isolating Cuba.84
Normalization marked the most significant change in the U.S-Cuba relationship since the Cuban revolution that happened in 1959. The normalization itself is announced on December 17, 2014 by the two leaders from U.S. and Cuba which is President Barack Obama (United States) and President Raul Castro (Cuba). U.S. and Cuban counterparts had done several efforts such as having nine secret meetings during 18 months to achieve the normalization. Both parties also dealt to have prisoners exchange as the first effort to support normalization.85
82 Morello, C., & DeYoung, K. (2014, December 17). Secret U.S.-Cuba diplomacy ended in landmark deal on prisoners, future ties. Retrieved February 26, 2017, from The Washington Post Web site: washingtonpost.com 83 84 Ibid. 85 Miller, Z. J. (2014, December 17). U.S. and Cuba Move to Thaw Relations After Prisoner Exchange. Retrieved December 12, 2016, from Time Web site: time.com3637483/alan-gross- cuba-barack-obama/ 40
III.3. Regional Response
U.S. policy of hostility towards Cuba has alleviated U.S. influence in Latin America region. U.S. influence is fading slowly in the Latin America region, one of the reasons is due to its policy towards Cuba. Most of the Latin American countries considered that the policy isolation policy upon Cuba is not relevant. Therefore some countries even U.S. allies leaned to Cuba. However U.S. plan to have bilateral rapprochement with Cuba helps U.S. to regain trust in the Latin American hemisphere.
The hostility policy dragged U.S. into unfavorable condition in the region and the Latin American nations demand U.S. to re-establish the diplomatic ties with Cuba and involving Cuba in the inter-American system to enhance a significant regional cooperation. Therefore U.S. initiation to normalize its relations with Cuba is warmly welcomed by the leaders in the region. It would not erase the grudge but U.S could regain regional trust by working well to address the other regional issues.
Leaders of some countries such as Colombia, Peru, Argentina, and Brazil cheered on the relations thaw. Even a problematic country like Venezuela which is having bitter relations with U.S. also congratulated this decision. This policy change upon Cuba does not only affect the bilateral relations between the related countries but it also has connection to define U.S. relations with the other countries in the region.
III.4. United States Engagement Policy
Foreign policy is a totality policy of a country‟s interaction with the environment beyond its border and it is created to achieve national interest. Engagement is a foreign policy strategy which is focused to balance the adversary‟s power. Policy engagement or coexistence with the opponent is a strategy to change the opponent‟s foreign or domestic policy.86
86 GerdaJakstaite. (2010). Containment and Engagement as Middle-Range theories. 41
On his inauguration in 2009 President Obama stated “We will extend a hand if you are willing to unclench your fist.” he said. His statement symbolized the rhetoric of policy of engagement that has been taken since his first administration. Engagement is a process not a destination. He took different path to address U.S. foreign policy, he recognized that the better way to influence an isolated country‟s behavior is not by invading them but through direct engagement in bilateral context.87
After the normalization is announced, the Department of States issued the engagement policy to support the bilateral thaw. U.S. isolation policy has failed therefore U.S. engagement policy could stimulate democracy and human right in Cuba better than the previous policy. The policy is grounded to President Obama‟s directive to embrace the Cubans to do self-determination in the country. Policy engagement and coexistence with Cuba became President Obama‟s consideration.88
“Now, where we disagree, we will raise those differences directly - – as we will continue to do on issues related to democracy and human rights in Cuba. But I believe that we can do more to support the Cuban people and promote our values through engagement. After all, these 50 years have shown that isolation has not worked. It‟s time for a new approach.”89
U.S. policy of engagement‟s strategy is increasing greater people-to- people interactions with the Cubans in order to support the Cuban‟s self- determination. The practices is began by lifting all restrictions on family visit to Cuba, removing restrictions on remittances to Cuba, and authorizing U.S. telecommunications network providers to be established in Cuba. President
87 World Economic Forum. (2015, April 27). Why engagement is the key to US foreign policy. Dipetik March 1, 2017, dari World Economic Forum Web site: www.weforum.org/agenda/2015/04/why-engagement-is-the-key-to-us-foreign-policy/ 88 Office of the Press Secretary. (2016, October 14). Presidential Policy Directive -- United States- Cuba Normalization. Dipetik February 26, 2017, dari The White House Web site: www.obamawhitehouse.archives.gov/the-press-office/2016/10/14/presidential-policy-directive- united-states-cuba-normalization 89 Office of the Press Secretary. (2014, December 17). Statement by The President on Cuba Policy Changes. Retrieved October 23, 2016, from The White House Web site: www.whitehouse.gov 42
Obama directed U.S. departments and agencies to support the engagement process.90
III.5. Chapter Conclusion
The bilateral normalization with Cuba is President Obama initiative since he got elected in 2008. He tried to re-establish the broken relations with Cuba from 2009 until his last Presidency period in 2016. There are several reasons which stimulated the bilateral thaw. First, the longstanding policy of hostility upon Cuba is no longer justifiable. The policy brought a little change in Cuba, Cuba is still ruled by The Castro, Cuba is still implementing one single Communism party, and even the policy did not only isolating Cuba but it is isolating U.S. as well because no other nations are in-line with U.S. behavior upon Cuba.
Second is the Cuban-American support, this community is the biggest influence to determine U.S. policy towards Cuba. According to the survey conducted by Florida International University in 2014, 52 per cent of Cuban- Americans were willing for U.S. to re-establish bilateral relations with Cuba. Third is Cuba‟s new leadership under President Raul Castro. President Raul Castro is more open towards bilateral thaw with U.S. compared to Fidel Castro. Moreover, he succeeds in bringing several changes on Cuba‟s economy sector by allowing the establishment of small private sector.
President Obama directed his aides in the National Security Agents to talk with the Cuban counterparts regarding the normalization initiative. Both parties involved in the secret talks for 18 months and ended with normalization announcement in 2014. Since policy of hostility is no longer justifiable, the Department of States issued new policy of engagement with Cuba to increase more people-to-people contact with the Cubans.
90 Ibid. 43
CHAPTER IV
THE IMPLEMENTATION OF UNITED STATES -
CUBA ENGAGEMENT PROCESS
IV.1. President Obama First Administration (2008-2012)
President Obama came into office on January 20, 2009. He pledged that he would re-establish relations with Cuba during his electoral campaign in 2008. Therefore three months after the inauguration day his administration announced several changes in U.S. policy to support his decision. The changes are hoped to bring U.S. interests better in Cuba; to support the Cubans to do self-determination towards the future and to spread the democratic values that respect basic human rights.91
President Obama focused on bridging family reunion between the Cuban- American and the Cubans. Cuban-Americans are Cubans who fled during several mass exoduses and stayed in United States, and due to the U.S.-Cuba broken relations the family was separated for more than fifty years since 1961. The Cuban-Americans are expected to be the ambassadors of liberty in Cuba.92
President Obama appointed the NSC to create a unit within the NSC which is responsible for diplomatic coordination especially this engagement diplomacy.93 President Obama administration made announcement on April 13, 2009, that his administration would mainly focus to bridge the gap between Cuban families which were separated in the past, promote freer information, and assist humanitarian items to support the Cubans. These could be a better way to realize
91 Office of The Press Secretary. (2009, April 13). Fact Sheet - Reaching out to the Cuban people. Retrieved December 11, 2016, from The White House Web site: https://www.whitehouse.gov/the- press-office/fact-sheet-reaching-out-cuban-people 92 Ibid. 93 Simpson, C. (2009). Obama Revamps National Security Posts. Wall Street Journal 44 the public dreams to see Cuba which implement democratic values and respect the basic rights of its citizens.94
In the connection, President Obama called for the Secretary of State, Treasury, and Commerce to ease the restriction on family visit and remittances. These ways could increase family reunion and indirectly would increase information exchange and provide humanitarian resources for the Cubans. President Obama‟s policy is focused on lifting family visit restriction, removing restrictions on remittances so Cubans could have better opportunities, authorizing telecommunication in Cuba to ease people-to-people interaction between Cubans and people outside, and revising gift parcel regulations so Cubans could get their humanitarian donations.95
President Obama called the Treasury Department‟s Office of Foreign Assets Control to issued Cuban Assets Control Regulations to ease the travel and remittances restriction to Cuba. New regulations with regard to the modification of the embargo are issued on September 3, 2009. Due to the embargo, U.S. banned any financial transactions related with Cuba so travel to Cuba is restricted and the Presidents could not lift the embargo. The leaders could not lift the embargo but they can ease the restriction therefore the previous U.S. leaders made several modifications to travel and remittances regulations. Hereby President Obama tried to relax the travel and remittance regulations in order to reunite the divided family and increased the Cuban quality of life with American‟s assistances.96
Following President Obama directive policy to ease travel and remittances restriction, President Obama announced several policy changes regarding to the matters mentioned above On January 14, 2011. President Obama launched
94 Office of The Press Secretary. (2009, April 13). Fact Sheet - Reaching out to the Cuban people. Retrieved December 11, 2016, from The White House Web site: https://www.whitehouse.gov/the- press-office/fact-sheet-reaching-out-cuban-people 95 Office of The Press Secretary. (2009, April 13). Fact Sheet - Reaching out to the Cuban people. Retrieved December 11, 2016, from The White House Web site: https://www.whitehouse.gov/the- press-office/fact-sheet-reaching-out-cuban-people 96 Office of The Press Secretary. (2009, April 13). Fact Sheet - Reaching out to the Cuban people. Retrieved December 11, 2016, from The White House Web site: https://www.whitehouse.gov/the- press-office/fact-sheet-reaching-out-cuban-people 45 people-to-people policy. The policy was originally issued by President Clinton in 1999 until his period ended in 2001. Besides to allow family reunion, this policy is launched in order to make American and Cubans easier to be involved in educational religious, or other events. He believed that the people-to-people engagement would strengthen Cuban civil society so they do not need to be dependent on Cuban government.97
President Obama succeeds at easing the restrictions however the normalization is failed to be achieved during his first administration. The biggest reason was due to The Gross case which pushed the normalization plan away from President Obama‟s administration priority lists in 2009. Alan Gross is an American subcontracting for the U.S. Agency for International Development. He executed a mission to Cuba and jailed on December 3, 2009. Gross tried to establish clandestine internet service for Cuban Jews. Cuba have tight control towards internet access so that Gross considered breaking Havana law by providing banned internet access to the small community in Cuba. Havana viewed Gross case as an attempt to destabilized Cuba regime.
Since Alan Gross is captured in 2009, Washington had been calling Havana to release him in order to process the normalization plan. Cuba invited U.S. for prisoners swap in 2012. Cuba would release Gross if only U.S. mind to release the Cuban Five, Cubans intelligence which arrested by U.S. in 2001. U.S. rejected Cuban government‟s calling to release the Cuban Five. President Obama‟s first presidency term had brought significant changes upon U.S. and Cuba relations thaw but failed to bring normalization into reality.
The main issue of normalization postponement during President Obama first term was poor human right record in the detention center. Gross got improper treatment inside the detention place, report said that he got abusive treatment, it urged U.S. to release him as soon as possible. President Obama proposed a requirement that Cuba should release its political prisoners especially Alan Gross
97 Office of the Press Secretary. (2011, January). Reaching Out to the Cuban People. Retrieved December 12, 2016, from White House Web site: http://www.whitehouse.gov/the-press- office/2011/01/14/reaching-out-cuban-people 46 releases as a significant step towards democracy. U.S. also concerned with 53 Cuban political dissidents who detained in Cuba. According to Human Right Watch 2010 Cuban government harassed the prisoners. Any human right defender act deserved to be punished accordingly with Cuba‟s law. Cuba government critically suppressed the human rights in the country. 98 It reflected that Cuba still repressed human rights even in jail therefore the normalization is failed to take place. 99
IV.2. President Obama Second Administration (2012-2016)
President Obama got re-elected as U.S. President on November 6, 2012. His second term reaped the fruit, historical announcement of U.S. and Cuba normalization was announced in December 2014. Marking the fifth anniversary of Gross arrest in Havana, President Obama said that Gross release would be a new step for further normalization efforts. Alan Gross case had been one of the hard rocks which blocked U.S. to normalize with Cuba. Therefore a deal on Alan Gross release and prisoner exchange would result good relations for both countries.
Pope Francis was involved in the normalization process. He privately sent letters addressed to U.S. and Cuba‟s Presidents. He advised both Presidents to resolve the case of the prisoners; Alan Gross jailed in Havana and three Cubans who had been jailed in Washington. Pope also called both countries to normalize the relations after the prisoner release.100
The National Security Council (NSC) was responsible to organize formal talks with the Cuban counterparts regarding to the normalization plan. After having 18 months long of secret talks, both countries finally announced that they
98 Isikof, M. (2012, December 1). Cuba pushes swap: its spies jailed in US for American contractor held in Havana. Retrieved December 12, 2016, from NBC News web site: www.investigations.nbcnews.com/_news/2012/12/01/15602211-cuba-pushes-swap-its-spies- jailed-in-US-for-American-contractor-held-in-havana 99 Office of the Press Secretary. (2011, January). Reaching Out to the Cuban People. Retrieved December 12, 2016, from White House Web site: http://www.whitehouse.gov/the-press- office/2011/01/14/reaching-out-cuban-people 100 Miller, Z. J. (2014, December 17). U.S. and Cuba Move to Thaw Relations After Prisoner Exchange. Retrieved December 12, 2016, from Time Web site: time.com3637483/alan-gross- cuba-barack-obama/ 47 are moving forward to bilateral normalization. The announcement formally announced by the leaders of both countries on December 17, 2014. Both countries made deal on prisoner exchange before the normalization happened. Many significant progresses are conducted after the announcement.101 President Obama assured that it was necessary to help Cubans reach better quality of life rather than kept on pushing a failed policy.102
There are several key elements of President Obama‟s new approach towards Cuba such as establishing diplomatic relations with Cuba, adjusting the regulations to empower the Cubans, facilitating travel expansion, facilitating remittances from U.S. individuals to Cuba, authorizing commercial sales export or import with Cuba, facilitating authorized transactions with Cuba, initiating new efforts to help Cubans gain better access to communicate freely, updating the embargo sanction, pursuing discussion with Cuban and Mexican government regarding to unresolved maritime boundaries in the Gulf of Mexico, reviewing Cuba‟s designation as a State Sponsor of Terrorism, Addressing Cuba participation in the 2015 Summit of the Americas in Panama, and being consistent with the commitments to democracy, human rights and civil society.103
IV.3. Engagement Process
President Obama directed the departments to support the engagement policy, here are the list of the departments with the most significant roles on supporting the policy of engagement towards Cuba from 2009-2016 :
101 Miller, Z. J. (2014, December 17). U.S. and Cuba Move to Thaw Relations After Prisoner Exchange. Retrieved December 12, 2016, from Time Web site: time.com3637483/alan-gross- cuba-barack-obama/ 102 Office of the Press Secretary. (2014, December 17). FACT SHEET: Charting a New Course on Cuba. Retrieved December 12, 2016, from White House Web site: https://www.whitehouse.gov/the-press-office/2014/12/17/statement-president-cuba-policy-changes 103 Office of the Press Secretary. (2014, December 17). FACT SHEET: Charting a New Course on Cuba. Retrieved December 12, 2016, from White House Web site: https://www.whitehouse.gov/the-press-office/2014/12/17/statement-president-cuba-policy-changes 48
IV.3.1. The National Security Council (NSC)
This agency has responsibility to the policy coordination and implementation. The path to achieve consensus in determining a foreign policy can be gained through presidential forum. Following his pledge to re-establish relations with Cuba, President Obama formed a presidential forum to coordinate the normalization plan in 2009. However the normalization is not achieved during President Obama first administration104
President Obama and his aides held a presidential forum in the White House considering about bringing back U.S. Cuba normalization initiative as one of the priorities on his second term. The first forum held to seek the potential to re-establish the relations with Cuba.
President Obama specifically appointed The Honorable Benjamin J. Rhodes, Assistant to the President and Deputy National Security Advisor for Strategic Communications to handle the normalization plan with Cuba starting from 2012. NSC conducted research to the Cuban- American in Miami to find out the public response upon the current U.S. relations with Cuba.
The path to have normalization with Cuba is formulated here in this department. The broken relations had been there for such a long time, it means Cuba has quite strong determination to keep on its belief since 50 years ago. Cuba was persistent to prove that the country could grow even under U.S. sanctions therefore the idea of normalization is doubted. NSC launched several efforts such as bilateral talks to convince the Cuban government that the policy to isolate each other has no point at all. The secret talks between U.S. and Cuban government is held for 18 months since 2013.105
104 Simpson, C. (2009). Obama Revamps National Security Posts. Wall Street Journal 105 White House: Cuban leaders didn’t want to change. (2016, November 3). Retrieved January 13, 2017, from Politico Web site: http://www.politico.com/story/2016/03/white-house-cuba- normalization-220639 49
There were nine secret talks led by this department, the talks are objected to advance normalization. After having several contemplations to address the differences between them, normalization initiative is agreed by both parties. The normalization is formally announced a year after the department launched secret talk effort with the Cuban counterpart.
IV.3.2. The Department of State
This department is responsible to issue a foreign policy. U.S. isolation policy has failed therefore U.S. needed a new approach which could stimulate democracy and human right in Cuba better than the previous policy. Policy of engagement and coexistence with Cuba became the consideration. The engagement policy is issued by this department and it has main focuses to spread democracy and human rights values, such as the freedom of speech and assembly and greater access to access information.
United States and Cuba are the members of several international organizations such as United Nations and World Trade Organization. Joining an international organization is beneficial especially for a country like Cuba to find new resources on trade, aid, foreign investment and political support. However Cuba was excluded from the Organization of American States (OAS) since the diplomatic ties with U.S. broken in 1960s.
U.S. department of state removed Cuba exclusion as the member countries therefore starting from 2009 Cuba is included as the member of OAS. Cuba then officially participated in the OAS annual meeting on April 2015 following U.S.-Cuba normalization. U.S. and Cuba re-opened the respective embassies in each country on July 20, 2015. The embassy re-opening was a major step to support the normalization, U.S. now is
50
more capable to directly engage with the Cuban society including the government, private sector, civil society and the publics. 106
The Department of State held human right dialogue in Washington on March 31, 2015 as the realization of U.S. commitment to uphold human right values in Cuba as both countries move into warmer relations. Tom Malinowski, the State Department‟s Assistant Secretary for Human Rights and Democracy, were representing United States. Meanwhile Cuba is represented by Pedro Luuis Pedroso, the Deputy Director of Multilateral Office Law at the Ministry of Foreign Affairs.107
U.S. new policy contains U.S. strong commitment to promote democracy and human right values towards Cuba. Both countries are divided by the differences amongst one another, one side tries to improve the human right record meanwhile another one is enjoying full authority to control the people‟s rights. The first meeting was a framework for the upcoming meetings and to seek the proper way to address both countries‟ differences.108
The second round human right dialogue between U.S. and Cuba is held in Havana on October 14, 2016. Entering the second dialogue Cuban representative raised the deeper human right issues done by United States. U.S. is accused for interrupting Cuba‟s sovereignty and also the embargo enactment. The embargo is irrelevance and it clearly violates human rights. If U.S. really wanted to assist the Cubans then the embargo lifting would be the first solution.
U.S. representatives pointed out the Cuban government who violates the human right by suppressing the Cubans and silence them to criticize the government, political opponents are locked up, and the media
106 (Bureau of Western Hemisphere Affairs, 2016) 107 Wroughton, L., & Adams, D. (2015, March 31). U.S., Cuba hold first formal talks on human rights. Retrieved January 5, 2017, from Reuters Web site: https://www.reuters.com/article/idUSKBN0MR1XP20150331 108 Office of the Spokeperson. (2016, October 13). U.S.-Cuba Human Rights Dialogue One Party is More Vocal Than The Other. Retrieved January 5, 2017, from Department of State: https://www.state.gov 51
is fully censored. Cuban government limits the access to the ICT therefore national development is hampered. It is hardening Cuba‟s peace, development, and blocking Cuba to exercise human rights for all.109
IV.3.3. The U.S. Mission to the United Nations (USUN)
This department is responsible to oversee the issues with Cuba to be presented in the U.S. forum. U.S. embargo upon Cuba is included a special issue which is discussed by the member countries. UN provided an annual United Nations General Assembly which discuss about a resolution calling for U.S. to lift its embargo upon Cuba.
Year Yes No Abstain
2009 187 3 (US, Israel, Palau) 2 (Marshall Islands, Federated States of Micronesia)
2010 187 2 (US, Israel) 3 (Marshall Islands, Federated States of Micronesia, Palau)
2011 186 2 (US, Israel) 3 (Marshall Islands, Federated States of Micronesia, Palau)
2012 188 3 (US, Israel) 3 (Marshall Islands, Federated States of Micronesia, Palau)
2013 188 2 (US, Israel) 3 (Marshall Islands, Federated States of Micronesia, Palau)
2014 188 2 (US, Israel) 3 (Marshall Islands, Federated States of Micronesia, Palau)
2015 191 2 (US, Israel) -
2016 191 - 2 (US, Israel)
109 Office of the Spokeperson. (2016, October 13). U.S.-Cuba Human Rights Dialogue. One Party is More Vocal Than The Other. Retrieved January 5, 2017, from Department of State: https://www.state.gov 52
Table 1: UNGA on the „Necessity of ending the economic, commercial and financial embargo imposed by the United States of America against Cuba‟110
U.S. embargo upon Cuba is condemned by most of the members‟ countries. Embargo caused impediment for Cuba‟s socioeconomic development because it isolated Cuba from the rest of the world. The member countries raised their voices to condemn the embargo by stating that embargo violated non-interference principle inhumane, it hampered the Cuban government efforts to fight poverty and caused economic stagnation for Cuba. Poverty is the grass root of other problems such as undermines the public health, education, infrastructure, and so on. The opponent considered that the Cuban government‟s failed domestic policy contributed to the economic loss in Cuba. 111
U.S. is persistent to keep its embargo upon Cuba before Cuba can develop. Development according to U.S. can be taken through several measures such as pursue free fair market, allow access to information, and open state-run monopolies.
Following the normalization announcement in 2014, UN held another UNGA resolution on embargo on October 27, 2015. The diplomatic relations are restored but the coldness was still there. U.S. still keep its stance to oppose the resolution, the Assembly resulted 191 Member States favored the resolution to end the embargo, two members against, and zero abstain, the three Member States which were abstain in the previous Assembly had favored the resolution.
Progresses had been made since the normalization is announced; the embassy re-opening, trade and travel are also eased. Cuba stated that full normalization requires embargo lifting meanwhile U.S. representative kept his stance to oppose the resolution. However different from the
110 www.un.org 111 General Assembly. (2014, October 28). As General Assembly Demands End to Cuba Blockade for Twenty-Third Consecutive Year, Country’s Foreign Minister Cites Losses Exceeding $1 Trillion. Retrieved January 10, 2017, from United Nations Web site: http://www.un.org/press/en/2014/ga11574.doc.htm 53
previous years, U.S. expressed the willingness to end the embargo due to President Obama statement that embargo is no longer justifiable. The problem is Congress obtains greater authority than the President itself to lift the embargo.112
UN held the next UNGA a year after on October 26, 2016. U.S. Different with the previous Assembly, U.S. representative asserted President Obama reasons to normalize U.S. Relations with Cuba on his remark. The representative implicitly expressed that policy of hostility is a failure. U.S. embargo upon Cuba is not only isolating Cuba but it isolates U.S. as well especially in that kind of Assembly. Therefore the path of engagement is chosen and several developments have been done since 2014 including the efforts of calling the U.S. Congress to lift the embargo.
USUN representative conveyed U.S. abstention for the very first time on the resolution calling for U.S. to end the embargo. U.S. was the biggest proponent of its own hostility policy which including embargoed Cuba as the implementation. Being abstain does not mean U.S. is surrender or it does not signaling the acceptance upon the current Cuba‟s condition. U.S. is abstaining but its concern to improve human right record and diplomacy in Cuba is still there.113
IV.3.4. The Department of the Treasury
This department specifically handled U.S. economic embargo restriction and licensing policies. It reviews and responds whether the public requests are suitable with regulatory changes and the existing law or not. The Treasury directly engaged with the Cuban government about the changes made within the department regarding to the embargo itself.
112 Reuters at the United Nations. (2015, October 27). UN condemns Cuba embargo for 24th consecutive year. Retrieved January 10, 2017, from The Guardian Web site: https://www.theguardian.com/world/2015/oct/27/un-condemns-cuba-embargo-for-24th- consecutive-year 113 Power, S. (2016, October 26). Remarks at a UN General Assembly Meeting on the Cuba Embargo. Retrieved December 9, 2016, from Mission of the United States Geneva Web site: https://geneva.usmission.gov/2016/10/27/first-united-states-abstention-vote-on-unga-resolution- on-cuba-embargo/ 54
Meanwhile the Department of Commerce supported the development of Cuban private sector, entrepreneurship, commercial law development, and intellectual property rights.
President Obama called the Congress to lift the embargo however there are several requirements that should be fulfilled including the demise of Castro, political transformation, and Cuba should hold fair and democratic election. The U.S. leaders have no authority to lift the embargo without the Congress‟ license but the leaders obtain the authority to modify the embargo. President Obama administration succeeded to modify the embargo by lifting all restrictions on family travel and remittances in 2009. The purpose is to increase more people-to-people exchange and indirectly stimulate Cubans‟ prosperity through family remittances.
Further amendment regarding to travel and remittances took place in 2015 following the normalization. In order to support the engagement policy this department made another modification to ease travel and remittances for non-family member. The Department of the Treasury‟s Office of Foreign Assets Control (OFAC) authorized travel for twelve categories under the Cuban Assets Control Regulations (CACR). Meanwhile the dollar remittances are licensed for certain categories.114
These are the twelve categories which is authorized to travel to Cuba; family visits; official business of the U.S. government, foreign governments, and certain intergovernmental organizations; journalistic activity; professional research and professional meetings; educational activities; religious activities; public performances, clinics, workshops, athletic and other competitions and exhibitions; support for the Cuban people; humanitarian projects; activities of private foundations or research or educational institutes; exportation, importation, or transmission of information or information materials; and certain export transactions that
114 U.S. Department of the Treasury. (2016, January 26). Treasury and Commerce Announce Further Amendments to the Cuba Sanctions. Retrieved January 10, 2017, from White House gov Web site. 55
may be considered for authorization under existing regulations and guidelines.115
OFAC licensed the authorized travelers to be accompanied by the close relatives. The authorized travelers are licensed to bring the close relatives to do educational activity in January 2015. Eight months after the amendment the activities are expanded including journalistic, professional research, religious activities and the activities which related with humanitarian and certain institution. The Amendment on September 2015 also licensed the authorized traveler to open a bank account in Cuba.116
IV.3.5. The Department of Defense (DOD)
This department fosters to elaborate with Cuban counterparts in defense-related activities to advance then normalization. The collaboration is focus on humanitarian assistance, disaster relief, and counter narcotics. The new selected Admiral of the U.S. Southern Command said that U.S. would cooperate with Cuba to address the emerging problems which threat the region.
Poor disaster management would lead into security problems. One of the problems is mass migration from Cuba which threatens the state‟s security. Therefore having comprehensive collaborations on this issue is advisable because it has traits to U.S.‟ security matters.117
U.S. and Cuba had a little collaboration on 2009 when the tropical storm strike Atlantic. Cuba is very good at evacuations, public health and
115 U.S. Embassy in Cuba. (n.d.). Traveling to Cuba. Retrieved January 19, 2017, from U.S. Embassy in Cuba Web site: www.cu.usembassy.gov/u-s/citizen-services/local-resources-of-u-s- citizens/traveling-to-cuba/ 116 U.S. Department of the Treasury. (2016, January 26). Treasury and Commerce Announce Further Amendments to the Cuba Sanctions. Retrieved January 10, 2017, from White House gov Web site. 117 Kilmer, G. (2015, September). Cuba Ties Seen as Advantageous to U.S. Security. Retrieved January 10, 2017, from National Defense Magazine Web site: http://www.nationaldefensemagazine.org/archive/2015/September/Pages/CubaTiesSeenasAdvanta geoustoUSSecurity.aspx 56
providing the medical needs for the people after the disaster. Therefore the collaboration brought a little hope to pursue normalization.118
Following the normalization that took place in 2014, Cuba is invited to participate in the Caribbean Nations Security Conference which is held on January 27, 2016 in Jamaica. It was the very first time for U.S. officers and Cuban counterparts to discuss about security matters. The new bilateral framework between both countries stimulated the awareness to achieve the mutual interests together. 119
IV.3.6. The Department of Homeland Security (DHS)
Department homeland security directly engages with Cuban government to combat terrorism and transnational crime. In order to support U.S. engagement policy objectives, DHS seeks cooperation with Cuba in coordination with other departments and agencies. This department is responsible to keep the cross borders security so the country will not be affected by the cross borders travel between U.S. and Cuba.
There is no significant collaboration on this sector during President Obama first administration. As for after the normalization, this department pioneered bilateral law enforcement dialogue between U.S. and Cuba. This dialogue is important to enhance cooperation between both countries in some areas of law enforcement such as counter-terrorism, counter-narcotics, transnational crime, cybercrime, secure travel and trade, and fugitives. Following the bilateral thaw, the very first law enforcement dialogue is held in Washington.120
118 Lacey, Marc. (2009, August). U.S. and Cuba Work Together on Storms. Retrieved January 10, 2017, from The New York Times Web site: www.nytimes.com/2009/08/21/world/americas/21storm.html 119 Agencies For Citizen Digital. (2016, January 30). U.S. military willing to cooperate with Cuba in regional security. Retrieved January 10, 2017, from Citizen Digital Web site: https://citizentv.co.ke/news/u-s-military-willing-to-cooperate-with-cuba-in-regional-security- 113182/ 120 Office of the Spokesperson. (2015, November 9). United States and Cuba Hold Law Enforcement Dialogue in Washington, DC. Retrieved January 11, 2017, from U.S. Department of State Web site: https://www.state.gov/r/pa/prs/ps/2015/11/249352.htm 57
The second law enforcement dialogue was taken place in Havana on May 17, 2016. Several issues related to the law enforcement are discussed during this second dialogue.121 The result of the second law enforcement dialogue was the Memorandum between Department of Homeland Security and the Ministry of Interior in Cuba. The MoU is a framework of information exchange related with transportation security for the travelers.122
IV.3.7. The Department of Justice (DOJ)
DOJ collaborates with DHS to fight terrorism and transnational crime through law enforcement partnership on information sharing, build and strengthen the current law enforcement. DOJ supported DHS to implement the engagement policy through several dialogues with the Cuban government.
U.S. and Cuba had cooperation over trafficking through Jamaica in 2009. The smugglers were using Cuban airspace and waters to transport narcotics to United States. Therefore Cuba helped U.S. in pointing one plane which carries the drugs to the U.S. Coast Guard, and vice versa.123
After the normalization in 2014, U.S.-Cuba cooperation went deeper. U.S. and Cuba U.S. and the Cuban counterparts held Counter- Narcotics Dialogue on December 1, 2015 in Washington. The dialogue
121 Office of the Spokesperson. (2016, May 13). United States and Cuba to Hold Second Law Enforcement Dialogue in Havana, Cuba. Retrieved January 11, 2017, from U.S. Department of States: https://www.state.gov/r/pa/prs/ps/2016/05/257195.htm 122 PLCY Assistant Secretary. (2016, May 17). Written testimony of PLCY Assistant Secretary for Border, Immigration, and Trade Policy Seth Stodder, TSA Office of Global Strategies Assistant Administrator Paul Fujimura, TSA Representative Larry Mizell, and CBP Office of Field Operations Executive Assi. Retrieved January 11, 2017, from Homeland Security Web site: https://www.dhs.gov/news/2016/05/17/written-testimony-plcy-tsa-and-cbp-house-homeland- security-subcommittee# 123 Lister, Tim. (2010, December). WikiLeaks: Cables reveal U.S.-Cuban cooperation over drug smuggling. Retrieved January 10, 2017, cnn Web site: edition.cnn.com/2010/US/12/16/wikileaks.smuggling/ 58
discussed the efforts to overcome narcotics issues from or to Cuba.124 The third Counter-Narcotics Dialogue is held on July 21, 2016 in Washington. Both parties signed arrangement on Counter-Narcotics to enhance further collaboration in this issue.125
DHS and DOJ together with the Cuban government worked together in a technical meeting on human trafficking and fraud prevention located Miami on February 1-4 2016. This meeting is objected to ensure migration safety and avoid human smuggling. This is an effort to collaborate with Cuba to avoid unlawful migrants without visa or permission to enter U.S. or Cuba. The second technical meeting is held in Havana on September 7, 2016. U.S. had been working on further efforts to avoid human trafficking and illegal migration such as customs and borders protection, coast guard protection, and so forth.126
Technical meeting on the other issues are also held. One of them is related with combating cybercrime in Havana on February 22 to 23, 2016. This meeting is objected to exchange information related with the efforts to overcome cybercrime including online fraud and illicit narcotics. Both parties also exchanged information regarding the penalty given to the criminals who involved in cybercrime.127 The last meeting under the topic of law enforcement is legal cooperation. Both countries held legal cooperation technical meeting in Havana on September 14, 2016. The
124 Office of the Spokesperson. (2015, December 2). United States and Cuba Hold Counter- Narcotics Dialogue. Retrieved January 11, 2017, from U.S. Embassy in Cuba: https://cu.usembassy.gov/united-states-cuba-hold-counter-narcotics-dialogue/ 125 Office of the Spokesperson. (2016, July 22). Counternarcotics Arrangement Signed During Third Counternarcotics Technical Exchange Between the United States and Cuba. Retrieved January 11, 2017, from U.S. Embassy in Cuba Web site: https://cu.usembassy.gov/counternarcotics-arrangement-signed-third-counternarcotics-technical- exchange-united-states-cuba/ 126 Office of the Spokesperson. (2016, September 6). United States and Cuba To Hold Human Smuggling and Migratory Fraud Prevention Technical Exchange in Havana, Cuba. Retrieved January 11, 2017, from U.S. Embassy in Cuba Web site: https://cu.usembassy.gov/counternarcotics-arrangement-signed-third-counternarcotics-technical- exchange-united-states-cuba/ 127 Office of the Spokesperson. (2016, February 24). United States and Cuba Hold Technical Talks on Cybercrime. Retrieved January 11, 2017, from U.S. Embassy in Cuba: https://cu.usembassy.gov/united-states-cuba-hold-technical-talks-cybercrime/ 59
objective was to create U.S. and Cuba collaboration in legal cooperation.128
IV.3.8. The Small Business Administration (SBA)
SBA has responsibility to enhance Cuban entrepreneurs, small business, and cooperative enterprises. This administration would support the development of small enterprises in Cuba. The Cubans should start to live accordingly with the will and not being restrained by the Cuban government. U.S. could help the Cubans to open the small creative business in the country to boost the national prosperity.
There is no collaboration between U.S. and the Cuban counterparts regarding to business during President Obama first administration. However after the normalization The Chief of this department, Maria Contreras-Sweet visited Cuba on June 20, 2016 and met with Rodrigo Malmierca, the Foreign Trade and Investment Minister. She was being introduced to the updated version of Cuban economic model, Cuba National Economic Development Plan 2030, Cuban economic sectors, and the bad impacts caused by U.S. embargo. She also managed to seek investment opportunity in Cuba. This agency will empower more U.S. investors to come to Cuba. More investment means more income for the Cubans so the Cubans can be more prosperous.129
IV.3.9. The Office of the U.S. Trade Representative
This department provides trade policy in accordance with restriction regulations. It ensures that normalization would expand trade between U.S. and Cuba. U.S. and Cuba had warmer ties since the normalization
128 Office of the Spokesperson. (2016, September 14). U.S.-Cuba Legal Cooperation Working Group to Meet in Havana, Cuba. Retrieved January 11, 2017, from U.S. Embassy in Cuba Web site: https://cu.usembassy.gov/u-s-cuba-legal-cooperation-working-group-meet-havana-cuba/ 129 Jacomino, P. (2016, June 22). U.S. Small Business Administration Chief Concludes Visit to Cuba. Retrieved January 11, 2017, from Radio Havana Cuba Web site: http://www.rhc.cu/en/noticias/nacionales/97765-us-small-business-administration-chief- concludes-visit-to-cuba 60
announced, even though the embargo is still there U.S. several times amended its regulations. Trade Sanctions Reform and Export Enhancement Act in 2000 licensed U.S. export of certain agricultural and medical goods for the sake of humanity to Cuba.
President Obama first administration had difficulty to advance the trade due to the restriction. Due to the normalization, trade between both countries becomes easier. Several regulatory changes done by Department of Commerce and the Treasury have removed the trade barriers. U.S. also expanded agricultural items to be exported to Cuba as well as some agricultural equipment for Cuban‟s farmers. U.S. ICT companies in Cuba also increased to provide better connectivity for the Cubans with the world. The regulatory changes on remittances enhanced Cubans to grow even more by increasing more engagement between Americans and the Cubans.130
IV.3.10. The Department of Agriculture (USDA)
USDA enhances agricultural collaborations between U.S. and Cuba. This department increased U.S. agricultural products export to Cuba in order to build market competitiveness and assist Cuban food security and agricultural capacity. The Department ensures that any agricultural exchange with Cuba is licensed under the applicable law.
USDA presence is very important to advance agricultural trade between U.S. and Cuba. Cuba has a potential market for U.S. products. However during 2009-2014 several restrictions still becomes the limitation, the limitations such as prohibition to provide private credit and financing and the ban of the government export program.
Both parties announced joint agreements on U.S.-Cuba agriculture, they agreed to have further collaboration on agricultural sector. On March 21, 2016 Agriculture Secretary Tom Vilsack announced several measures
130 Excecutive office of the President. (n.d.). Cuba. Retrieved January 11, 2017, from Office of the United States Trade Representative: https://ustr.gov/countries-regions/americas/cuba 61
for further collaborations. U.S. and Cuba signed MoU which covers the framework for ideas exchange between them about agricultural productivity, food security, and sustainable natural resources management.
USDA advances more agricultural partnership with Cuba. In conducting the duty, USDA proposed several activities which could enhance more cooperation with the Cubans, such as: Provide nutritional research and guidance with the Cubans; assist Cuba to improve the nutrition especially for the children; provide U.S.-based markets, consumer, nutrition, and environmental research and finding; improve the clean water quality; identify the nutritious diet which could improve Cubans‟ health or lower the risk to chronic illness, and increase product development acceptance.131
IV.3.11. The Department of Health and Human Services (HHS)
HHS signed MoU with the Ministry of Public Health of the Republic of Cuba on June 1, 2016. The MoU contains agreement that both countries will collaborate to combat Zika virus, dengue, chikungunya, and other arboviruses. U.S. partnered with Cuba in disease prevention, detection, and treatment. Department of Health and Human Services signed MoU with Cuba‟s Ministry of Public Health on June 13, 2016. As for President Obama first administration, collaboration on health is limited because normalization has not taken place.
U.S. Secretary of Health and Human Services, Sylvia Matthews Burwell, visited Havana for on November 2016. She learned about the Cuban‟s doctors efforts to increase life expectancy and decrease the mortality rate. Cuba is basically well-known for its human development especially the medical workers. This new approach fosters better health in the future because they can work collectively to achieve mutual interests,
131 United States Department for Agriculture. (2016, March 21). Agriculture Secretary Vilsack Announces Historic Agreements for U.S.-Cuba Agriculture Sectors. Retrieved January 11, 2017, from United States Department for Agriculture Web site: https://www.usda.gov/wps/portal/usda/usdahome?contentid=2016/03/0069.xml 62
to gain good access to good health care quality, fight cancer, and protect the people from viruses or serious diseases which endanger lives.132
Cuba had a good response to Ebola issue and had been participating to tackle the issue in West Africa. One of the most tangible cooperation between U.S. and Cuba is both countries fast response towards the Ebola virus in West Africa. They urged the other countries to help, sent medical workers and equipment, military personnel, and other financial assistances. It also became the very first country which eliminated HIV transmission from mother to children. Both countries collaborated to diagnose several diseases such as chikungunya, dengue, and other serious illness.133 Health issue has brought both countries even closer.
IV.3.12. The U.S. Agency for International Development (USAID)
USAID embraces the Cubans to actively take part in supporting better human right condition and civic affairs. USAID is empowering the establishment of independent society groups which can contribute more to the society. It also provides better access to information and telecommunication for Cubans.
USAID is specifically working in the following areas. First of all provides humanitarian sport towards political prisoners and their families. Cuba‟s poor human right records could be easily found in Cuba‟s prison. Any critics addressed to the Cuban leaders or Cuba‟s political system is prohibited, democracy and human rights dissidents are also imprisoned. The condition in the prison was very poor that security forces let the prisoners starving and repeatedly getting beaten them.134 Therefore USAID continuously giving humanitarian assistance to the political
132 Matthews, S. (2016, November 7). The Promise of a Strong U.S.-Cuba Health Partnership. Retrieved January 11, 2017, from U.S. Department of Health & Human Services Web site: https://www.hhs.gov/blog/2016/11/07/promise-strong-us-cuba-health-partnership.html 133 HHS Press Office. (2016, June 3). HHS Engages in Historic Health Collaboration with Cuba. Retrieved January 11, 2017, from HHS Web site: https://www.hhs.gov/about/news/2016/06/13/hhs-engages-historic-health-collaboration-cuba.html 134 Human Right Watch. (2015). World Report 205. Retrieved January 16, 2017, from HRW Web site: https://www.hrw.org/world-report/2015/country-chapters/cuba 63
prisoners and their families; provided nutritional food items, vitamins, and medicines.
The second is enhancing human rights and democracy promotion. Freedom of assembly and associate are basic rights that could not be fulfilled by the Cuba‟s government. The establishment of political organizations could increase democracy however the Cuban government limits any political organizations which did not recognize by the Cuban Constitution. Hereby USAID provided technical assistance to organize, train, and support small organizations in Cuba. Cubans could gather and work together within their own communities, it trains them to be independent from the government. USAID also tried to spread awareness regarding with good human right practice according to the international standard.
The third is facilitating the free flow of information. Cuba has been controlling all media and any information sources. In 2010 USAID created fake Cuban Twitter as an effort to overthrow President Castro regime. U.S. had done several efforts to chase Castro away from the office such as by imposed economic embargo, assassination, or through political insurgency, however not even a single of the effort were succeed. Due to the globalization U.S. used more modern technique to achieve the goal; Tweet the Castro off from the office.
On April 3, 2014 USAID revealed fake Cuba‟s Twitter network belongs to USAID. The Cubans called the network as ZunZuneo which means the sound of hummingbird. The USAID declared that the clandestine built network was another mean to undermine Castro. U.S. realized that the power of civil society can topple Castro from his office so USAID initiated to use the social media to expel Castro.135
135 Roig-Franzia, M. (2014, April 3). USAID effort to undermine Cuban government with fake 'Twitter' another anti-Castro failure. Retrieved December 20, 2016, from The Washington Post: https://www.washingtonpost.com 64
Last but not least, USAID has been running a democracy program in Cuba called Radio and TV Marti broadcasting in Cuba since 1990s. Following the normalization with U.S., Cuban President Raul Castro called U.S. to end the Radio and TV Marti broadcasting in 2015 because the broadcast contains anti-Castro propaganda. The two countries are involved in continuous debate over the Radio and TV Marti. Cuba government considered the Marti broadcast is illegal and disrupting Cuba‟s sovereignty.136
IV.3.13. The Department for Transportation (DOT)
DOT is responsible to develop transportation facilities which could link U.S. and Cuba. This department provides regulatory and transportation safety system in order to support the relaxation on travels and commerce restrictions.
On February 2016 there were seven out of thirteen carriers applied to provide flight other than Havana. Months after the application, DOT authorized flight from U.S. to other cities beside Havana in Cuba. As mentioned in the fact sheet, there are six U.S. airlines under authorization which is ready to provide scheduled flights from U.S. to Cuba. The new regulations were effective on June 10, 2016.
Those six airlines are American Airlines, Frontier Airlines, JetBlue Airlines, Silver Airways, Southwest Airlines, and Sun Country Airlines. Under the new U.S.-Cuba approach this department licensed around 20 scheduled passenger flights to Havana in a day, meanwhile the scheduled passenger travel to other cities beside Havana are only licensed up to 10 flights per day.
136 Munzenrieder. (2015, January 28). Raul Castro Demands Return of Guantanamo, End of Radio and TV Marti, and Payments - See more at: http://blogs.law.columbia.edu/commonlaw/2015/07/19/over-and-out-the-conclusion-of-radio- marti-after-a-long-history-of-controversy-under-contradictory-legal-st. Retrieved January 12, 2017, from Miami New Times Web site. 65
Anthony Foxx, a Secretary of U.S. Transportation Department proposed new U.S. airlines and cities for the scheduled travel to Cuba. Another announcement which made by this department happened on August 31, 2016. There were twelve U.S. airlines who proposed to have flight from U.S. to ten cities in Cuba however this department only authorized eight out of ten airplanes, which are Alaska Airlines, American Airlines, Delta Air Airlines, Frontier Airlines, JetBlue Airways, Southwest Airlines, Spirit Airlines, and United Airlines. This department tried to create competition amongst the carriers to provide best and diverse travel choices in terms of network, low-cost, the airport, and the non-stop connecting services.137
The increasing number on airlines and the city list are a way to support family reunion for the Cuban-American which is separated for more than 50 years ago. Family reunion is in line with the objective of President Obama‟s engagement policy.
IV.3.14. The Office of the Director of National Intelligence (DNI)
DNI supports the government efforts to have bilateral normalization with Cuba. It seeks for engagement‟s opportunities from the area of shared interest to achieve mutual interests. President Obama‟s directive called DNI to foster collaboration with Cuban counterparts in terms of intelligence sharing.
Therefore this problem is debatable. Both countries were tangled in espionage issue towards each other for a long time, yet there is no guarantee that this engagement will lessen the espionage activities. U.S. and Cuba espionage past relations was bitter; the two American citizens‟ airplane firing, the Cuban Five spying, and Alan Gross which is considered as the act of spying in Cuba.
137 U.S. Transportation Secretary Foxx Proposes U.S. Airlines and Cities for New Scheduled Service to Havana. (n.d.). Retrieved January 12, 2017, from U.S. Department of Transportation: https://www.transportation.gov/briefing-room/us-transportation-secretary-foxx-proposes-us- airlines-and-cities-new-scheduled-service 66
Moreover Cuba is considered as the top four of countries which pose the greatest espionage threat for the U.S. after Russia, China, and Iran according to James Clapper, the Director of U.S. National Intelligence. However Joseph Wippl, the former CIA officer was against his statement by saying that Cuba nowadays poses no threat for United States.
V.3.15. The Department of the Interior (DOI)
DOI collaborates with Cuba on marine protection, wildlife conservation, terrestrial national protected areas, and seismic records. This department‟s responsibilities are to do conservation or manage the nation‟s natural resources and cultural heritages. U.S. and Cuba is only divided by 90 miles sea therefore marine collaboration between them is important. This cooperation can foster marine life protection and both countries can obtain learning points from each other. U.S. could learn to recover its reefs from Cuban pristine reefs, for example.
Fabian Pina Amargos, a Cuban‟s first-rate marine scientist stated that U.S.-Cuba diplomatic rupture has hardened Cuba participation in any environmental conference. She emphasized that Cuba always had the good deed to talk and discuss about environmental issue with U.S. but there was not significant response from U.S. government.138 In the connection, there is no significant cooperation regarding to this matter on President Obama first administration. Therefore fortunately after the normalization, it becomes much easier for Cuba to engage with United States. President Obama during the Palace of the Revolution which is held in Cuba on March 22, 2016, stated that U.S. government will work with Cuba counterparts to protect the beauty in the region‟s shared waters.139
138 Smelser, M. (2015, October 5). U.S.-Cuba Pact Advances Efforts to Protect Shared Marine Life from Rising Threats. Retrieved January 12, 2017, from EDF Web site: https://www.edf.org/media/us-cuba-pact-advances-efforts-protect-shared-marine-life-rising-threats 139 Ocean Doctors. (n.d.). Obama Calls for Cuba-U.S. Collaboration in Marine Conservation. Retrieved January 12, 2017, from Ocean Doctors Web site: http://oceandoctor.org/obama-cuba- marine-conservation-collaboration/ 67
IV.4. The Implementation of United States Engagement Process to advance U.S. Interest in Cuba
United States has been concerning about the communism practice in Cuba therefore U.S. had been working to spread democracy and human right values upon Cuba. The communism system is applied by Fidel Castro government after revolution 1959 which caused diplomatic rupture between U.S.-Cuba. The Cuban government continuously repressed the basic human rights in Cuba, tight media censoring, and silent the political opponents. There is a philosophy in realism stated by Machiavelli “The end justify the means” which means that a leader can pursue any means to achieve a valuable end. Therefore President Castro chose to lead the country by spreading fear to maintain his power in Cuba.
U.S. is powerful but it could only influence sovereign countries, not controlling them because its power has limitation. Realism views that military power is ought to be the only certainty in this dangerous world. Therefore world politics today looks like three dimensional chess board. The top part is about military, the middle part is about economic relations meanwhile the bottom part describes about transnational relations such as climate issue, drugs, terrorism, trafficking in person, and environmental issues. More issues are compiled in the bottom and military power itself will not be enough to handle those new threats. Hence intergovernmental cooperation is advisable.
The world is anarchy and there is no state above the others, realism does not acknowledge law so state could not punish the other sovereign states. Accordingly, U.S. could not continuously punish Cuba by isolating the country in order to transform Cuba into a democratic country. U.S. embargoed Cuba for more than five decades to see the demise of Cuban authoritarian leader which repressed the human rights.
U.S. imposed policy of containment during Cold War era as the power balancing strategy. U.S. imposed containment upon Cuba in order to limit the adversary power which is Soviet Union expansionism globally. Cuba was very
68 close with Soviet Union, it even applied communist system. U.S. was afraid if Soviet Union would spread communism easily in Latin America region through Cuba so U.S. used containment as the foreign policy strategy.140
U.S. cannot impose Cuba to transform into democratic country because changes must come within Cuba itself. Foreign policy is created to serve national interest and any attempt to spread values will be meaningless. There is no such thing as good deed to the neighboring countries because self-motive to gain more is always be there and this is in line with the nature of realism which view other states as threat. U.S. is willing to demolish communism from Cuba to protect the state security. Any communist state is resulting huge exodus wave to the neighboring countries. Apparently U.S. is a prosperous and promising country to the Cuban refugees who wanted to flee Cuba.
One of the influential academicians is Hans Morgenthau who contributed to the classical realism‟s development. Morgenthau expresses that foreign policy is grounded on the national objectives and guided by national interests.141 According to classical realism, there are two ways for a state to do power balancing which is by preserving the status quo or imposing imperialistic foreign policy. In order to achieve the objective, classical realism use power balancing strategy such as containment and engagement.142
The policy of containment brought minor change to advance U.S. interests to spread democracy and human rights in Cuba. Therefore U.S. under President Obama administration used engagement as the foreign policy strategy to advance the national interest better. Engagement is a strategy to change the opponent‟s foreign or domestic policy hereby U.S. is trying to influence Cuba to be a democratic country. U.S. pursues engagement to influence Cuba and to maintain its power upon Cuba. There is no guarantee that the engagement would not stimulate another U.S. intervention in Cuba.
140 Joshua S. Goldstein, supra note 37, p. 67 141 Morgenthau, H. (1978). Politics among Nations. New York: Knoff. 142 Joshua S. Goldstein, supra note 37, p. 67 69
IV.5. Chapter Conclusion
President Obama initiative to re-establish bilateral relations cannot be achieved during his first administration (2009-2012) and being announced on his second term instead (2012-2016). The Gross case was being the hard rock which impeded the normalization plan. Cuban government was still enjoying its tittle being U.S. foe therefore Cuba refused U.S. call to release Alan Gross in order to advance normalization. There were no significant engagements between U.S.- Cuba during President Obama first administration however things are changed after the normalization announcement in 2014.
There are several key elements of President Obama‟s new approach towards Cuba such as establishing diplomatic relations with Cuba, adjusting the regulations to empower the Cubans, facilitating travel expansion, facilitating remittances from U.S. individuals to Cuba, authorizing commercial sales export or import with Cuba, facilitating authorized transactions with Cuba, initiating new efforts to help Cubans gain better access to communicate freely, updating the embargo sanction, pursuing discussion with Cuban and Mexican government regarding to unresolved maritime boundaries in the Gulf of Mexico, reviewing Cuba‟s designation as a State Sponsor of Terrorism, Addressing Cuba participation in the 2015 Summit of the Americas in Panama, and being consistent with the commitments to democracy, human rights and civil society.143
U.S. policy of engagement towards Cuba has made several progresses since 2009-2016. U.S. normalization has brought the two countries closer moreover both countries embassies‟ are re-opened in each country, make it easier for U.S. and Cuba to expand more contacts directly. U.S. now has greater access to be engaged with the Cubans. The relaxation on travel and remittances restriction promotes the values of democracy and human rights better than the policy of hostility. Americans and especially Cuban-Americans are the prominent ambassador to stimulate the values in Cuba.
143 Office of the Press Secretary. (2014, December 17). FACT SHEET: Charting a New Course on Cuba. Retrieved December 12, 2016, from White House Web site: https://www.whitehouse.gov/the-press-office/2014/12/17/statement-president-cuba-policy-changes 70
Cuba has participated in the regional forum such as OAS, it gives more opportunity for Cuba to gain regional supports in some aspects such as economic or political assistance. Due to the normalization U.S. - Cuba are also enhanced more cooperation on law enforcement, defense, health, agriculture, and even interior protection. However even though U.S. and Cuba already moved into closer relationship, the embargo is still intact. This is due to the condition that Cuba still governs by an authoritarian leader and Cuba still implements communism, which can possibly against United States in the future.
The normalization is initiated because U.S. is slowly losing its influence. United States policy of hostility is condemned by most of the nations. U.S lost its influence in Latin America region, most of the Latin American countries considered that the policy isolation policy upon Cuba is not relevant. Therefore some countries even U.S. allies leaned to Cuba. However U.S. plan to have bilateral rapprochement with Cuba helps U.S. to regain trust in the Latin American hemisphere. U.S. is being isolated in international forum such as United Nations General Assembly as well, most of the countries are contradict with U.S. embargo and hope that U.S. could lift its embargo upon Cuba. 144
144Power, S. (2016, October 26). Remarks at a UN General Assembly Meeting on the Cuba Embargo. Retrieved December 9, 2016, from Mission of the United States Geneva Web site: https://geneva.usmission.gov/2016/10/27/first-united-states-abstention-vote-on-unga-resolution- on-cuba-embargo/ 71
CHAPTER V
CONCLUSION
Cuba was a tool for Soviet Union to spread its ideology in Latin America region during Cold War period. United States‟ policy towards Cuba always be based on U.S. concern to see the Castro‟s regime collapse in Cuba. U.S. policy of hostility is imposed to limit Cuba‟s power during Cold War. However the policy is no longer justifiable because Cold War has ended and Soviet Union was fall since 1991, Cuba no longer poses a threat for United States. Therefore President Obama initiated new policy to address U.S-Cuba relations.
President Obama issued policy of engagement and coexistence with the Cuban counterparts. President directed U.S. agencies and departments to support the policy of engagement since 2009-2016. The implementation was firstly begun with the establishment of bilateral commission in 2009 to handle further dialogues with Cuba which could foster the normalization process. The final outcome was the bilateral normalization which is the major change on U.S. relations with Cuba.
President Obama has shifted its attention from the embargo and moved towards bilateral thaw instead. The long-standing embargo brought a little effect to advance U.S. interest to empower the Cubans‟ liberty. President Obama imposed engagement as the strategy of U.S. foreign policy upon Cuba. As a foreign policy strategy, engagement is objected to change the change the opponent‟s foreign or domestic policy.
The policy of engagement contains the modification of several regulations which is based on the leader‟s permissible access to modify the embargo. This policy of engagement focuses to create greater people-to-people contact between American and the Cubans. President Obama modified some restrictions on travel and remittances regulations to support President Obama‟s initiative. The embargo modification on travel restriction can unite the Cuban-Americans with their families in Cuba, they are also the best ambassador to spread democratic and
72 human right values in Cuba. Meanwhile modification on remittances itself could help the Cubans to be more prosperous so they can lessen their dependence on the Cuban government. The policy of engagement fosters more bilateral cooperation between U.S. and Cuba.
In fact, normalization is advanced due to the U.S. condition which starts to lose its influence slowly in the Latin America region. The United States policy of hostility does not only isolating Cuba but it isolates United States as well. The regional and global unity is growing against U.S. policy of hostility especially the embargo. U.S. needs to maintain its power therefore normalization is advanced to regain regional and global trust back to the United States.
All of the United States‟ efforts to engage with Cuba under President Obama first and second administration reflect the realism theory. The engagement process explains the importance of self-interest. United States considered its interest to spread democracy and human rights in Cuba as an essential condition which in line with morality. Meanwhile Cuba viewed U.S. interest as a threat to the state‟s sovereignty and the leader‟s authority in the country.
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The Editors of Encyclopædia Britannica. (n.d.). Communist Party of Cuba. Retrieved December 2, 2016, from Encyclopædia Britannica Web Site: https://www.britannica.com/topic/Communist-Party-of-Cuba
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Wroughton, L., & Adams, D. (2015, March 31). U.S., Cuba hold first formal talks on human rights. Retrieved January 5, 2017, from Reuters Web site: https://www.reuters.com/article/idUSKBN0MR1XP20150331
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APPENDICES
The White House Office of the Press Secretary For Immediate Release December 17, 2014
Statement by the President on Cuba Policy Changes
Cabinet Room
12:01 P.M. EST THE PRESIDENT: Good afternoon. Today, the United States of America is changing its relationship with the people of Cuba.
In the most significant changes in our policy in more than fifty years, we will end an outdated approach that, for decades, has failed to advance our interests, and instead we will begin to normalize relations between our two countries. Through these changes, we intend to create more opportunities for the American and Cuban people, and begin a new chapter among the nations of the Americas.
There‟s a complicated history between the United States and Cuba. I was born in 1961 –- just over two years after Fidel Castro took power in Cuba, and just a few months after the Bay of Pigs invasion, which tried to overthrow his regime. Over the next several decades, the relationship between our countries played out against the backdrop of the Cold War, and America‟s steadfast opposition to communism. We are separated by just over 90 miles. But year after year, an ideological and economic barrier hardened between our two countries.
Meanwhile, the Cuban exile community in the United States made enormous contributions to our country –- in politics and business, culture and sports. Like immigrants before, Cubans helped remake America, even as they felt
85 a painful yearning for the land and families they left behind. All of this bound America and Cuba in a unique relationship, at once family and foe.
Proudly, the United States has supported democracy and human rights in Cuba through these five decades. We have done so primarily through policies that aimed to isolate the island, preventing the most basic travel and commerce that Americans can enjoy anyplace else. And though this policy has been rooted in the best of intentions, no other nation joins us in imposing these sanctions, and it has had little effect beyond providing the Cuban government with a rationale for restrictions on its people. Today, Cuba is still governed by the Castros and the Communist Party that came to power half a century ago.
Neither the American, nor Cuban people are well served by a rigid policy that is rooted in events that took place before most of us were born. Consider that for more than 35 years, we‟ve had relations with China –- a far larger country also governed by a Communist Party. Nearly two decades ago, we reestablished relations with Vietnam, where we fought a war that claimed more Americans than any Cold War confrontation.
That‟s why -– when I came into office -– I promised to re-examine our Cuba policy. As a start, we lifted restrictions for Cuban Americans to travel and send remittances to their families in Cuba. These changes, once controversial, now seem obvious. Cuban Americans have been reunited with their families, and are the best possible ambassadors for our values. And through these exchanges, a younger generation of Cuban Americans has increasingly questioned an approach that does more to keep Cuba closed off from an interconnected world.
While I have been prepared to take additional steps for some time, a major obstacle stood in our way –- the wrongful imprisonment, in Cuba, of a U.S. citizen and USAID sub-contractor Alan Gross for five years. Over many months, my administration has held discussions with the Cuban government about Alan‟s case, and other aspects of our relationship. His Holiness Pope Francis issued a personal appeal to me, and to Cuba‟s President Raul Castro, urging us to resolve
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Alan‟s case, and to address Cuba‟s interest in the release of three Cuban agents who have been jailed in the United States for over 15 years.
Today, Alan returned home –- reunited with his family at long last. Alan was released by the Cuban government on humanitarian grounds. Separately, in exchange for the three Cuban agents, Cuba today released one of the most important intelligence agents that the United States has ever had in Cuba, and who has been imprisoned for nearly two decades. This man, whose sacrifice has been known to only a few, provided America with the information that allowed us to arrest the network of Cuban agents that included the men transferred to Cuba today, as well as other spies in the United States. This man is now safely on our shores.
Having recovered these two men who sacrificed for our country, I‟m now taking steps to place the interests of the people of both countries at the heart of our policy.
First, I‟ve instructed Secretary Kerry to immediately begin discussions with Cuba to reestablish diplomatic relations that have been severed since January of 1961. Going forward, the United States will reestablish an embassy in Havana, and high-ranking officials will visit Cuba.
Where we can advance shared interests, we will -– on issues like health, migration, counterterrorism, drug trafficking and disaster response. Indeed, we‟ve seen the benefits of cooperation between our countries before. It was a Cuban, Carlos Finlay, who discovered that mosquitoes carry yellow fever; his work helped Walter Reed fight it. Cuba has sent hundreds of health care workers to Africa to fight Ebola, and I believe American and Cuban health care workers should work side by side to stop the spread of this deadly disease.
Now, where we disagree, we will raise those differences directly -– as we will continue to do on issues related to democracy and human rights in Cuba. But I believe that we can do more to support the Cuban people and promote our values through engagement. After all, these 50 years have shown that isolation has not worked. It‟s time for a new approach.
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Second, I‟ve instructed Secretary Kerry to review Cuba‟s designation as a State Sponsor of Terrorism. This review will be guided by the facts and the law. Terrorism has changed in the last several decades. At a time when we are focused on threats from al Qaeda to ISIL, a nation that meets our conditions and renounces the use of terrorism should not face this sanction.
Third, we are taking steps to increase travel, commerce, and the flow of information to and from Cuba. This is fundamentally about freedom and openness, and also expresses my belief in the power of people-to-people engagement. With the changes I‟m announcing today, it will be easier for Americans to travel to Cuba, and Americans will be able to use American credit and debit cards on the island. Nobody represents America‟s values better than the American people, and I believe this contact will ultimately do more to empower the Cuban people.
I also believe that more resources should be able to reach the Cuban people. So we‟re significantly increasing the amount of money that can be sent to Cuba, and removing limits on remittances that support humanitarian projects, the Cuban people, and the emerging Cuban private sector.
I believe that American businesses should not be put at a disadvantage, and that increased commerce is good for Americans and for Cubans. So we will facilitate authorized transactions between the United States and Cuba. U.S. financial institutions will be allowed to open accounts at Cuban financial institutions. And it will be easier for U.S. exporters to sell goods in Cuba.
I believe in the free flow of information. Unfortunately, our sanctions on Cuba have denied Cubans access to technology that has empowered individuals around the globe. So I‟ve authorized increased telecommunications connections between the United States and Cuba. Businesses will be able to sell goods that enable Cubans to communicate with the United States and other countries.
These are the steps that I can take as President to change this policy. The embargo that‟s been imposed for decades is now codified in legislation. As these
88 changes unfold, I look forward to engaging Congress in an honest and serious debate about lifting the embargo.
Yesterday, I spoke with Raul Castro to finalize Alan Gross‟s release and the exchange of prisoners, and to describe how we will move forward. I made clear my strong belief that Cuban society is constrained by restrictions on its citizens. In addition to the return of Alan Gross and the release of our intelligence agent, we welcome Cuba‟s decision to release a substantial number of prisoners whose cases were directly raised with the Cuban government by my team. We welcome Cuba‟s decision to provide more access to the Internet for its citizens, and to continue increasing engagement with international institutions like the United Nations and the International Committee of the Red Cross that promote universal values.
But I‟m under no illusion about the continued barriers to freedom that remain for ordinary Cubans. The United States believes that no Cubans should face harassment or arrest or beatings simply because they‟re exercising a universal right to have their voices heard, and we will continue to support civil society there. While Cuba has made reforms to gradually open up its economy, we continue to believe that Cuban workers should be free to form unions, just as their citizens should be free to participate in the political process.
Moreover, given Cuba‟s history, I expect it will continue to pursue foreign policies that will at times be sharply at odds with American interests. I do not expect the changes I am announcing today to bring about a transformation of Cuban society overnight. But I am convinced that through a policy of engagement, we can more effectively stand up for our values and help the Cuban people help themselves as they move into the 21st century.
To those who oppose the steps I‟m announcing today, let me say that I respect your passion and share your commitment to liberty and democracy. The question is how we uphold that commitment. I do not believe we can keep doing the same thing for over five decades and expect a different result. Moreover, it does not serve America‟s interests, or the Cuban people, to try to push Cuba
89 toward collapse. Even if that worked -– and it hasn‟t for 50 years –- we know from hard-earned experience that countries are more likely to enjoy lasting transformation if their people are not subjected to chaos. We are calling on Cuba to unleash the potential of 11 million Cubans by ending unnecessary restrictions on their political, social, and economic activities. In that spirit, we should not allow U.S. sanctions to add to the burden of Cuban citizens that we seek to help.
To the Cuban people, America extends a hand of friendship. Some of you have looked to us as a source of hope, and we will continue to shine a light of freedom. Others have seen us as a former colonizer intent on controlling your future. José Martí once said, “Liberty is the right of every man to be honest.” Today, I am being honest with you. We can never erase the history between us, but we believe that you should be empowered to live with dignity and self- determination. Cubans have a saying about daily life: “No es facil” –- it‟s not easy. Today, the United States wants to be a partner in making the lives of ordinary Cubans a little bit easier, more free, more prosperous.
To those who have supported these measures, I thank you for being partners in our efforts. In particular, I want to thank His Holiness Pope Francis, whose moral example shows us the importance of pursuing the world as it should be, rather than simply settling for the world as it is; the government of Canada, which hosted our discussions with the Cuban government; and a bipartisan group of congressmen who have worked tirelessly for Alan Gross‟s release, and for a new approach to advancing our interests and values in Cuba.
Finally, our shift in policy towards Cuba comes at a moment of renewed leadership in the Americas. This April, we are prepared to have Cuba join the other nations of the hemisphere at the Summit of the Americas. But we will insist that civil society join us so that citizens, not just leaders, are shaping our future. And I call on all of my fellow leaders to give meaning to the commitment to democracy and human rights at the heart of the Inter-American Charter. Let us leave behind the legacy of both colonization and communism, the tyranny of drug cartels, dictators and sham elections. A future of greater peace, security and
90 democratic development is possible if we work together -- not to maintain power, not to secure vested interest, but instead to advance the dreams of our citizens.
My fellow Americans, the city of Miami is only 200 miles or so from Havana. Countless thousands of Cubans have come to Miami -- on planes and makeshift rafts; some with little but the shirt on their back and hope in their hearts. Today, Miami is often referred to as the capital of Latin America. But it is also a profoundly American city -– a place that reminds us that ideals matter more than the color of our skin, or the circumstances of our birth; a demonstration of what the Cuban people can achieve, and the openness of the United States to our family to the South. Todos somos Americanos.
Change is hard –- in our own lives, and in the lives of nations. And change is even harder when we carry the heavy weight of history on our shoulders. But today we are making these changes because it is the right thing to do. Today, America chooses to cut loose the shackles of the past so as to reach for a better future –- for the Cuban people, for the American people, for our entire hemisphere, and for the world.
Thank you. God bless you and God bless the United States of America.
Changing Course in Cuba: The Progress We've Made Since 2014
On December 17, 2014, President Obama announced that he was rejecting the failed, Cold War-era policy era of the past to chart a new course in Cuba. Check out the progress we've made in normalizing relations with a country just 90 miles off our coast.
Timeline of Diplomatic Engagement
Dec 17, President Obama and President Castro simultaneously 2014 announced a new course in relations between the United States and Cuba.
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May 29, The Secretary of State rescinded Cuba¹s designation as a State 2015 Sponsor of Terrorism List, another step forward toward a more normal and productive relationship between the United States and Cuba.
Mar 31, The United States and Cuba held in Washington D.C. the first 2015 planning session for a Human Rights Dialogue at which both governments raised issues to pursue. Jul 20, 2015 The Embassy of the United States of America re-opened in Havana and the Cuban Embassy re-opened in Washington, D.C. U.S. diplomats now have greater freedom of movement in Cuba, including the ability to travel across the island and engage the Cuban people broadly. Cuban citizens also have greater access to our Embassy. The opening of the U.S. Embassy substantially improved our ability to engage the Cuban people and support U.S. interests in Cuba. Aug 14, Secretary of State Kerry visited Cuba for the U.S. Embassy's 2015 flag raising ceremony, noting in his remarks that having normal relations makes it easier for us to talk, and talk can deepen understanding even when we know full well we will not see eye to eye on everything. Secretary Kerry was the first U.S. Secretary of State to visit Cuba in 70 years.
Sep 11, The United States and Cuba established the Bilateral 2015 Commission, the primary vehicle for advancing normalization. Oct 7- The United States and Cuba held the inaugural regulatory 8,2015 dialogue to discuss more effective implementation of U.S. regulatory policies toward Cuba.
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Nov 9, The United States and Cuba held the first bilateral Law 2015 Enforcement Dialogue. The discussion focused on a wide range of areas of cooperation in law enforcement, including counter- terrorism, counter-narcotics, transnational crime, cyber-crime, secure travel and trade, and fugitives. Nov 18, The U.S. and Cuban governments signed a memorandum of 2015 understanding to establish a cooperative relationship dedicated to the science, stewardship, and management of our countries existing marine protected areas. Nov 24, The U.S. and Cuban governments signed a joint statement 2015 pledging cooperation between our two countries on a range of environmental issues such as protection of our marine and coastal areas, disaster risk reduction, and oil spill prevention and response. Nov 30, The U.S. and Cuban governments held the regularly scheduled 2015 Migration Talks to discuss continuing implementation of the U.S.-Cuba Migration Accords, which provide for the safe, orderly, and legal migration of Cubans to the United States. Dec 1, 2015 The United States and Cuba held our second Counternarcotics Dialogue. Under this dialogue, the two governments seek to increase counternarcotics cooperation and information exchange Dec 8, 2015 The U.S. and Cuban governments held the first Dialogue on Claims, a first step in a complex process. The U.S. government is committed to resolving U.S. claims against the Cuban government. Dec 10, The U.S. and Cuban governments held the first Dialogue on 2015 Claims, a first step in a complex process. The U.S. government is committed to resolving U.S. claims against the Cuban government.
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Dec 17, President Obama marked the one-year anniversary of his new 2015 course in relations with Cuba. He noted that we are advancing our shared interests and working together on complex issues that for too long definedand dividedus. Meanwhile, the United States is in a stronger position to engage the people and governments of our hemisphere. Jan 11, Ambassador-at-Large to Monitor and Combat Trafficking in 2016 Persons Susan Coppedge met with Cuban government officials and others to discuss the country's efforts to address trafficking in persons. Feb 16, A bilateral arrangement to restore scheduled air services between 2016 the United States and Cuba was signed by Transportation Secretary Foxx and Department of State Assistant Secretary for Economic and Business Affairs Charles Rivkin; scheduled service is expected to commence later this year. Feb 17-18, The U.S. and Cuban governments held the second Regulatory 2016 Dialogue to discuss more effective implementation of U.S. regulatory policies toward Cuba. Mar 16, First direct mail flights between the United States and Cuba for 2016 the first time in 50 years. The flight to Cuba carried a letter to a 76-year-old letter writer in Cuba.
A Failed Approach
Decades of U.S. isolation of Cuba have failed to accomplish our objective of empowering Cubans to build an open and democratic country. At times, longstanding U.S. policy towards Cuba has isolated the United States from regional and international partners, constrained our ability to influence outcomes throughout the Western Hemisphere, and impaired the use of the full range of tools available to the United States to promote positive change in Cuba. Though
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this policy has been rooted in the best of intentions, it has had little effect – today, as in 1961, Cuba is governed by the Castros and the Communist party.
We cannot keep doing the same thing and expect a different result. It does not serve America‟s interests, or the Cuban people, to try to push Cuba toward collapse. We know from hard-learned experience that it is better to encourage and support reform than to impose policies that will render a country a failed state. We should not allow U.S. sanctions to add to the burden of Cuban citizens we seek to help.
Next Steps, New Course
Since the President took office in 2009, he has taken steps to support the ability of the Cuban people to gain greater control over their own lives and determine their country‟s future.
Now, the President is taking the next steps to renew our leadership in the Americas, end our outdated approach on Cuba, and promote more effective change that supports the Cuban people and our national security interests.
Here’s what the President’s new approach will do: Re-establish diplomatic relations
Our diplomatic relations with Cuba were severed in January of 1961. The President is immediately reopening discussions with Cuba and working to re- establish an embassy in Havana in the next coming months. The U.S. will work with Cuba on matters of mutual concern that advance U.S. national interests, such as migration, counternarcotics, environmental protection, and trafficking in persons, among other issues.
More effectively empower the Cuban people by adjusting regulations
The President is taking steps to improve travel and remittance policies that will
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further increase people-to-people contact, support civil society in Cuba, and enhance the free flow of information to, from, and among the Cuban people
Facilitate an expansion of travel to Cuba
The U.S. is restoring up to 110 direct, commercial roundtrip flights a day. With expanded travel, Americans will be able to help support the growth of civil society in Cuba more easily, and provide business training for private Cuban businesses and small farmers. Americans will also be able to provide other support for the growth of Cuba‟s nascent private sector.
General licenses will be made available for all authorized travelers in 12 existing categories:
1. Family visits 2. Official business of the U.S. government, foreign governments, and certain intergovernmental organizations 3. Journalistic activity 4. Professional research and professional meetings 5. Educational activities 6. Religious activities 7. Public performances, clinics, workshops, athletic and other competitions, and exhibitions 8. Humanitarian projects
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9. Activities of private foundations, research, or educational institutions 10. Exportation, importation, or transmission of information or information materials 11. Certain export transactions that may be considered for authorization under existing regulations and guidelines
Authorize expanded sales and exports of certain goods and services from the U.S. to Cuba
The expansion will seek to empower the nascent Cuban private sector and make it easier for Cuban citizens to have access to certain lower-priced goods to improve their living standards and gain greater economic independence from the state.
Authorize American citizens to import additional goods from Cuba
Licensed U.S. travelers to Cuba will be authorized to import $400 worth of goods from Cuba, of which no more than $100 can consist of tobacco products and alcohol combined.
Initiate new efforts to increase Cubans’ access to communications and their ability to communicate freely
Cuba has an Internet penetration of about five percent – one of the lowest rates in the world. The cost of telecommunications in Cuba is exorbitantly high, while the services offered are extremely limited. Now, telecommunications providers will be allowed to establish the necessary mechanisms, including infrastructure, in Cuba to provide commercial telecommunications and internet services.
Human Rights and Civil Society
A critical focus of these actions will include continued strong support for improved human rights conditions and democratic reforms in Cuba. The
97 promotion of democracy supports universal human rights by empowering civil society and a person‟s right to speak freely, peacefully assemble, and associate, and by supporting the ability of people to freely determine their future. The U.S. efforts are aimed at promoting the independence of the Cuban people so they do not need to rely on the Cuban state.
The U.S. Congress funds democracy programming in Cuba to provide humanitarian assistance, promote human rights and fundamental freedoms, and support the free flow of information in places where it is restricted and censored. The Administration will continue to implement U.S. programs aimed at promoting positive change in Cuba, and we will encourage reforms in our high level engagement with Cuban officials.
The United States encourages all nations and organizations engaged in diplomatic dialogue with the Cuban government to take every opportunity both publicly and privately to support increased respect for human rights and fundamental freedoms in Cuba.
Ultimately, it will be the Cuban people who drive economic and political reforms. That is why President Obama took steps to increase the flow of resources and information to ordinary Cuban citizens in 2009, 2011, and today. The Cuban people deserve the support of the United States and of an entire region that has committed to promote and defend democracy through the Inter- American Democratic Charter.
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