INSIGHTi

Biden Administration’s Cuba Policy Changes
May 25, 2022
On May 16, 2022, the Biden Administration announced several forthcoming changes to U.S. policy
toward Cuba, with the overarching goal of increasing support for the Cuban people. The changes, which
emanate from a policy review begun by the Administration in 2021, fall into four broad areas—
facilitating family reunification, expanding authorized travel, supporting Cuba’s private sector, and easing
some restrictions on remittances. According to the State Department spokesperson, the changes will
provide Cubans with “additional tools to pursue life free from Cuban government oppression and to seek
greater economic opportunities.” The Administration stated that it plans to implement the policy changes
in the coming weeks through various steps and regulatory changes undertaken by relevant U.S.
departments and agencies.
Although the forthcoming changes include some easing of restrictions on travel and remittances, the
United States maintains a comprehensive economic embargo on Cuba, including restrictions on
transactions with entities on a “Cuba Restricted List” that are controlled by the Cuban military,
intelligence, or security services. Biden Administration officials assert that human rights issues, including
political prisoners, will remain at the center of U.S. policy toward Cuba. In the aftermath of the Cuban
government’s harsh response to government-wide protests in July 2021, the Administration imposed
several rounds of targeted financial sanctions and visa restrictions on Cuban officials found to be
responsible for the repression.
Family Reunification
The Administration said it will reinstate the Cuban Family Reunification Parole (CFRP) program and
increase immigrant visa processing at the U.S. Embassy in Havana. The CFRP program, administered by
the Department of Homeland Security’s U.S. Citizenship and Immigration Services, allows certain U.S.
citizens and lawful permanent residents with approved petitions for family members in Cuba to apply for
immigration parole for those individuals. If a CFRP application is approved, the family members are
issued documentation to enable them to travel to the United States. The program was established in 2007
to help the United States meet its annual obligations under the 1994/1995 U.S.-Cuba migration accords to
legally admit a minimum of 20,000 Cubans annually. CFRP processing at the U.S. Embassy in Havana
was suspended in 2017 amid the drawdown of staff due to the unexplained health injuries suffered by
some embassy community members. In the 117th Congress, H.R. 6907, introduced in March 2022, would
direct the Administration to reinstate the processing of applications under the CFRP.
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Limited immigrant visa processing at the U.S. Embassy in Havana resumed on May 3, 2022, and
Administration officials maintain they want to staff up the embassy to process the full 20,000 immigrant
visas in Havana as quickly as possible. Until that time, the United States plans to continue to process the
majority of Cuban immigrant visa cases at the U.S. Embassy in Georgetown, Guyana.
Expansion of Authorized Travel
The policy change affecting authorized travel to Cuba for U.S. citizens has three components. First, the
Administration plans to reauthorize scheduled and charter flights to Cuban locations beyond Havana.
During the Trump Administration, the Transportation Department suspended such scheduled flights in
2019 and such charter flights in 2020.
Second, the Administration plans to reinstate people-to-people educational travel under a general license
(meaning travelers would not have to apply to the Treasury Department for authorization) and would limit
the authorization to group travel. During the Trump Administration, the Treasury Department, by
amending the Cuban Assets Control Regulations (CACR, 31 C.F.R. 515), eliminated individual people-to-
people travel in 2017 and group people-to-people travel in 2019. The Biden Administration’s change
would require the Treasury Department to amend the CACR at 31 C.F.R. 515.565.
Third, the Administration plans to authorize additional travel related to professional meetings and
professional research, including travel to support expanded internet access and remittance processing
companies and to provide support to Cuban entrepreneurs. This change also would require amending the
CACR at 31 C.F.R. 515.564.
Support for Cuba’s Private Sector
The Administration states that it will increase support for independent Cuban entrepreneurs by
authorizing access to U.S. internet services, cloud technology, applications, and e-commerce platforms
and will work to expand entrepreneurs’ access to microfinance and training. U.S. officials maintain the
United States will explore options for electronic payments and for U.S. business activities with
independent private entrepreneurs. These changes also likely would require changes to the CACR.
Eased Restrictions on Remittances
The Administration plans to ease some restrictions on sending cash remittances to Cuba that the previous
Administration tightened in 2019. The current limit of $1,000 per quarter in family remittances that can
be sent to any one Cuban national is to be lifted, and donative or non-family remittances are to be
authorized with the goal of supporting independent Cuban entrepreneurs. These changes would require
amending the CACR at 31 C.F.R. 515.570.
The Administration asserts that it will not remove from the “Cuba Restricted List” entities that are
associated with the Cuban military, including Financiera Cimex (FINCIMEX), a financial investment and
remittance company owned by a Cuban military-controlled umbrella enterprise. FINCIMEX’s addition to
the list in 2020 led to Western Union ceasing its operations in Cuba. At the time, Western Union was the
major financial services company used for transmitting remittances to Cuba.
As with most changes in Cuba policy, reaction to the Administration’s announcement has been mixed
among Members of Congress and policy groups, although the changes do not require congressional
action. Some Members who support maximum sanctions pressure criticize the changes as “providing
concessions to the brutal Cuban dictatorship.” Some advocating for engagement characterize the changes
as “very welcome” or a “significant” step forward and laud “measures to support the Cuban people.”
Some Members oppose authorizing group travel to Cuba, characterizing it as “akin to tourism,” or

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“remain unconvinced” that it will weaken Cuba’s oppressive polices. Policy groups on both sides of the
Cuba sanctions/engagement debate have expressed support for the Administration’s reinstatement of the
CFRP program to restore a channel for legal migration.
Also see CRS In Focus IF10045, Cuba: U.S. Policy Overview; CRS Report RL31139, Cuba: U.S.
Restrictions on Travel and Remittances; and CRS Report R45657, Cuba: U.S. Policy in the 116th
Congress and Through the Trump Administration.


Author Information

Mark P. Sullivan

Specialist in Latin American Affairs




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