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Cuba: U.S. Policy and Issues for the 113Th Congress Cuba: U.S. Policy and Issues for the 113th Congress Mark P. Sullivan Specialist in Latin American Affairs May 20, 2014 Congressional Research Service 7-5700 www.crs.gov R43024 Cuba: U.S. Policy and Issues for the 113th Congress Summary Cuba remains a one-party communist state with a poor record on human rights. The country’s political succession in 2006 from the long-ruling Fidel Castro to his brother Raúl was characterized by a remarkable degree of stability. In February 2013, Castro was reappointed to a second five-year term as president (until 2018, when he would be 86 years old), and selected 52- year old former Education Minister Miguel Díaz-Canel as his First Vice President, making him the official successor in the event that Castro cannot serve out his term. Raúl Castro has implemented a number of gradual economic policy changes over the past several years, including an expansion of self-employment. A party congress held in April 2011 laid out numerous economic goals that, if implemented, could significantly alter Cuba’s state-dominated economic model. Few observers, however, expect the government to ease its tight control over the political system. While the government reduced the number of political prisoners in 2010-2011, the number increased in 2012; moreover, short-term detentions and harassment have increased significantly over the past several years. U.S. Policy Congress has played an active role in shaping policy toward Cuba, including the enactment of legislation strengthening and at times easing various U.S. economic sanctions. While U.S. policy has consisted largely of isolating Cuba through economic sanctions, a second policy component has consisted of support measures for the Cuban people, including U.S. government-sponsored broadcasting (Radio and TV Martí) and support for human rights and democracy projects. The Obama Administration has continued this similar dual-track approach. While the Administration has lifted all restrictions on family travel and remittances, eased restrictions on other types of purposeful travel, and moved to reengage Cuba on several bilateral issues, it has also maintained most U.S. economic sanctions in place. On human rights, the Administration welcomed the release of many political prisoners in 2010 and 2011, but it has also criticized Cuba’s continued harsh repression of political dissidents through thousands of short-term detentions and targeted violence. The Administration has continued to call for the release of U.S. government subcontractor Alan Gross, detained in 2009 and sentenced to 15 years in prison in 2011, and maintains that Gross’s detention remains an impediment to more constructive relations. Legislative Activity Strong interest in Cuba is continuing in the 113th Congress with attention focused on economic and political developments, especially the human rights situation, and U.S. policy toward the island nation, including sanctions. The continued imprisonment of Alan Gross remains a key concern for many Members. In March 2013, Congress completed action on full-year FY2013 appropriations with the approval of H.R. 933 (P.L. 113-6), which continues to provide funding for Cuba democracy and human rights projects and Cuba broadcasting (Radio and TV Martí). In January 2014, Congress completed action on FY2014 appropriations with the approval of an FY2014 omnibus appropriations measure, H.R. 3547 (P.L. 113-76), which continues funding for Cuba democracy and human rights projects and Cuba broadcasting. In the measure, Congress stated that up to $17.5 million in Economic Support Funds (ESF) should be made available for programs and activities in Cuba, but also stipulated that no ESF may be obligated by the U.S. Agency for International Development for any new programs or activities in Cuba. The State Department estimates that $20 million in ESF will be provided for Cuba democracy funding for Congressional Research Service Cuba: U.S. Policy and Issues for the 113th Congress FY2014, and the Administration’s request for FY2015 is for $20 million. For Cuba broadcasting, the FY2014 omnibus measure provided $27.043 million, and the FY2015 request is for $23.130 million. With regard to Cuba sanctions, both the House and Senate versions of the FY2014 Financial Services and General Government appropriations measure, H.R. 2786 and S. 1371, had different provisions that would have tightened and eased travel restrictions respectively, but none of these provisions were included in the FY2014 omnibus appropriations measure (P.L. 113-76). Several other initiatives on Cuba have been introduced in the 113th Congress. Several would lift or ease U.S. economic sanctions on Cuba: H.R. 214 and H.R. 872 (overall embargo); H.R. 871 (travel); and H.R. 873 (travel and agricultural exports). H.R. 215 would allow Cubans to play organized professional baseball in the United States. H.R. 1917 would lift the embargo and extend nondiscriminatory trade treatment to the products of Cuba after Cuba releases Alan Gross from prison. Identical initiatives, H.R. 778/S. 647 would modify a 1998 trademark sanction; in contrast, H.R. 214, H.R. 872, H.R. 873, and H.R. 1917 each have a provision that would repeal the sanction. H.Res. 121 would honor the work of Cuban blogger Yoani Sánchez. H.Res. 262 would call for the immediate extradition or rendering of all U.S. fugitives from justices in Cuba. This report will be updated periodically during the 113th Congress. For additional information, see CRS Report RL31139, Cuba: U.S. Restrictions on Travel and Remittances. Congressional Research Service Cuba: U.S. Policy and Issues for the 113th Congress Contents Recent Developments ...................................................................................................................... 1 Introduction ...................................................................................................................................... 2 Cuba’s Political and Economic Situation ......................................................................................... 4 Brief Historical Background ...................................................................................................... 4 Political Conditions ................................................................................................................... 5 Human Rights Conditions ................................................................................................... 7 Economic Conditions and Reform Efforts .............................................................................. 11 Cuba’s Foreign Relations ........................................................................................................ 16 North Korean Ship Incident .............................................................................................. 19 U.S. Policy Toward Cuba............................................................................................................... 22 Background on U.S.-Cuban Relations ..................................................................................... 22 Clinton Administration’s Easing of Sanctions ................................................................... 23 Bush Administration’s Tightening of Sanctions ................................................................ 23 Obama Administration Policy ................................................................................................. 24 Debate on the Direction of U.S. Policy ................................................................................... 27 Issues in U.S.-Cuban Relations ...................................................................................................... 28 U.S. Restrictions on Travel and Remittances .......................................................................... 29 U.S. Agricultural Exports and Sanctions ................................................................................. 31 Trademark Sanction ................................................................................................................. 34 U.S. Funding to Support Democracy and Human Rights ........................................................ 35 Oversight of U.S. Democracy Assistance to Cuba ............................................................ 39 Imprisonment of USAID Subcontractor since December 2009 ........................................ 40 Radio and TV Marti ................................................................................................................. 43 Funding for Cuba Broadcasting ........................................................................................ 44 Oversight of Radio and TV Martí ..................................................................................... 45 Terrorism Issues ....................................................................................................................... 47 Migration Issues ...................................................................................................................... 50 Cuba Alters Its Policy Regarding Exit Permits ................................................................. 53 Anti-Drug Cooperation ............................................................................................................ 54 Cuba’s Offshore Oil Development .......................................................................................... 55 Cuban Spies ............................................................................................................................
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