Cuba-Us Relations: Normalization and Its Challenges
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CUBA-US RELATIONS: NORMALIZATION AND ITS CHALLENGES CUBA-US RELATIONS: NORMALIZATION AND ITS CHALLENGES — EDITED BY — Dr. Margaret E. Crahan & Dr. Soraya M. Castro Mariño — A JOINT PROJECT OF — THE CUBA PROGRAM INSTITUTE OF LATIN AMERICAN STUDIES COLUMBIA UNIVERSITY & CENTRO DE INVESTIGACIONES DE POLÍTICA INTERNACIONAL INSTITUTO SUPERIOR DE RELACIONES INTERNACIONALES EDITORS Margaret E. Crahan Cuba Program Institute of Latin American Studies Columbia University, US Soraya M. Castro Mariño Centro de Investigaciones de Política Internacional Instituto de Relaciones Internacionales, Cuba Copyright © 2016 by Institute of Latin American Studies All rights reserved. This book or any portion thereof may not be reproduced or used in any manner whatsoever without the express written permission of the publisher except for the use of brief quotations in a book review or scholarly journal. ISBN 978-0-9983785-0-3 Printed in the United States of America First Printing: 2016 Cover Image: U.S. President Barack Obama and Cuba’s President Raul Castro shake hands during their first meeting on the second day of Obama’s visit to Cuba, in Havana March 21, 2016. CREDIT LIE: REUTERS/Carlos Barria IMAGE ID: RTSBILH SIZE: 2200PX X 1533PX FILE SIZE: 9MB Image Printed on acid-free paper Institute of Latin American Studies 420W 118th Street New York, NY 10027 www.ilas.columbia.edu DEDICATION This book is dedicated to all those who since the 1960s worked for the normalization of relations between Cuba and the United States. May their efforts serve as a foundation for profound friendship and respect between the two nations. CONTENTS Acknowledgements ...................................................................................................................... ix Introduction Margaret E. Crahan and Soraya M. Castro Mariño ....................................................................... 1 CONTEXT .................................................................................................................................... 15 CHAPTER 1 No Time to Lose: Navigating the Shoals of the New U.S.-Cuba Relationship William M. LeoGrande.................................................................................................................. 17 CHAPTER 2 The New Era of Cuba-U.S. Relations: Breaking Down Axioms and Establishing Lasting Legacies? Soraya M. Castro Mariño.............................................................................................................. 49 CHAPTER 3 Factors Determining Dialogue: Cuba in the U.S. Strategic Plan for the 21st Century Ernesto Domínguez López........................................................................................................... 83 CHAPTER 4 Latin American and Caribbean Regional Integration in the Context of Re-Establishing U.S.-Cuba Diplomatic Relations Claudia Marín Suárez................................................................................................................. 105 CHAPTER 5 U.S. Cuban Immigration Policy and Its Unintended Consequences Susan Eckstein........................................................................................................................... 129 CHAPTER 6 The Impact of the Cuban American Community on U.S. Policy Toward Cuba Jesús Arboleya Cervera ............................................................................................................. 153 CHAPTER 7 Academics and Think Tanks: Have They Influenced Normalization of U.S. Relations With Cuba? Margaret E. Crahan.................................................................................................................... 169 vii ISSUES ...................................................................................................................................... 185 CHAPTER 8 Chipping Away at the Embargo: President Obama and the U.S. Economic Sanctions Against Cuba William M. LeoGrande................................................................................................................ 187 CHAPTER 9 U.S.-Cuba Property Claims: The Way Forward Alberto R. Coll ............................................................................................................................ 201 CHAPTER 10 U.S.-Cuba Security Cooperation After D17: Opportunities and Challenges Geoff Thale................................................................................................................................. 225 CHAPTER 11 Developing Regional Capacities to Face Climate Change: Spaces for a Common Cuba-U.S. Agenda Bárbara Garea Moreda & Ramón Pichs Madruga...................................................................... 241 CHAPTER 12 Cuba’s Chance to Get Back to the Future…in a Sustainable Way Julia Sagebien & Eric Leenson................................................................................................... 259 CHAPTER 13 What is the U.S. Waiting For? Time for a New Migration Framework Robert L. Bach............................................................................................................................ 283 CHAPTER 14 Cuba, the U.S., and the Concept of Sovereignty: Toward a Common Vocabulary Ashley Miller & Ted Piccone ....................................................................................................... 307 MOVING AHEAD ....................................................................................................................... 325 CHAPTER 15 Political Polarization in the U.S.: Perspectives and Consequences for Cuba Carlos Ciaño Zanetti................................................................................................................... 327 CHAPTER 16 The New President and U.S.-Cuba Relations: Reactions and Actions by the U.S. Congress Mike Kopetski ............................................................................................................................. 347 CHAPTER 17 Getting Along With the Colossus: Climbing on Board without Losing the Way John H. Coatsworth.................................................................................................................... 373 CHAPTER 18 Spoiling the Spoilers: Evading the Legacy of Failed Attempts to Normalize U.S.-Cuba Relations Philip Brenner & Colleen Scribner.............................................................................................. 385 Contributors................................................................................................................................ 420 viii ACKNOWLEDGEMENTS This book is a joint effort of the Cuba Program of the Institute of Latin American Studies (ILAS) at Columbia University and the Centro de Investigaciones de Política Internacional (CIPI) at the Instituto Superior de Relaciones Internacionales (ISRI) in Havana, Cuba. These institutions contributed substantially to the preparation of this book, as did the authors who come from Cuba, the United States, and Canada. At Columbia University, special thanks are due to Dr. John H. Coatsworth, Provost of the University, for his ongoing support of this project. At ILAS we recognize the contributions of José Moya, Academic Director, Esteban Andrade, Program Manager, and Eliza Kwon- Ahn, Business Manager. Maritza Colón, Executive Director of ILAS, deserves special recognition for repeatedly stepping in to shoulder major tasks that ensured that this book would be finished on time and with quality. At CIPI and ISRI we offer our warm thanks to all those who contributed to the writing and publication of this volume. This list is long and, so as not to forget anyone, we thank them all for being always there for us. Editorial assistance was provided by Anne McGuire and José Ramírez-Rivera. Translation was a challenge and we owe much to the efforts of Monica Agrest, Maritza Colón, Meg Crahan, and José Ramírez Rivera. Special thanks to Mario Bronfman for his wise counsel and unfailing support. This book was funded by the Ford Foundation and the Institute of Latin American Studies at Columbia University. ix Introduction This volume is a result of the dialogue between experts on Cuba-U.S. relations initiated by the Centro de Investigaciones de Política Internacional of the In- stituto Superior de Relaciones Internacionales (CIPI/ISRI). Aimed at bringing together scholars and policymakers, among others, with expertise on the topic, the annual meetings in Havana have for years stimulated in-depth discussions by participants primarily from Cuba, the United States, and Latin America. The exchanges represent a wide range of perspectives and even of vocabularies. For example, the Cubans use the word blockade when referring to the U.S. embargo of the island and tend to hear “regime change” when U.S. officials refer to “de- mocracy promotion”. In one respect there has been considerable consensus—that U.S. policy toward Cuba since the 1960s was a failed policy as the Obama ad- ministration eventually concluded and many experts have argued. The 2014 annual CIPI/ISRI meeting was in full swing on December 17, 2014 when rumors began to circulate that President Raúl Castro and President Barack Obama were going to make statements at mid-day concerning Cuba-U.S. relations. Tension mounted and at noon there was standing room only in the con- ference auditorium as the two Presidents announced on TV their commitment to the normalization of relations that had been ruptured in 1961. The room erupted in cheers, sobs, and the singing of the Cuban and U.S. national anthems. The experts were shocked. In panel after