Updated July 27, 2023
Cambodia
Overview: U.S.-Cambodia Relations
extralegal political maneuvers; influence over the judiciary,
The Department of State refers to the Kingdom of
broadcast media, and labor unions; patronage; cronyism;
Cambodia, located in mainland Southeast Asia, as
violence; and intimidation.
“strategically significant.” Bilateral relations have become
strained during the past decade, as Cambodia’s relationship
In November 2017, the Supreme Court of Cambodia issued
with the People’s Republic of China (PRC) has grown
a ruling that dissolved the CNRP for “conspiring with the
closer and after Prime Minister Hun Sen banned the main
United States to overthrow the government.” The CPP
opposition party in 2017. The U.S. government has sought
subsequently won all 125 seats in the 2018 National
to remain engaged with Cambodia while calling on Hun
Assembly election. In the July 2023 general election, the
Sen to restore democratic rights and resist PRC influence.
CPP, which faced little competition due to its suppression
The United States has imposed restrictions on some foreign
of opposition groups, won 120 of 125 seats in the National
assistance to Cambodia in response to human rights
Assembly. The State Department released a statement
concerns while continuing to provide support to Cambodian
declaring, “The United States is troubled that the July 23
civil society. Some observers contend that Cambodian civil
Cambodian national elections were neither free nor fair.”
society, independent journalists, and urban youth may be
The statement continued, “In response, the United States
particularly receptive to continued U.S. engagement.
has taken steps to impose visa restrictions on individuals
who undermined democracy and implemented a pause of
In 2017, the Cambodian government suspended Angkor
certain foreign assistance programs.”
Sentinel, an annual joint exercise between U.S. Army
Pacific and the Royal Cambodian Army first held in 2010.
Cambodian courts have convicted opposition leader and
In 2018, the U.S. government suspended military assistance
former CNRP President Sam Rainsy, who lives in self-
to Cambodia in response to its government’s suppression of
imposed exile in France, of numerous crimes that many
the political opposition.
observers view as politically motivated. In October 2022,
Sam Rainsy was convicted in absentia to life in prison, on
Politics and Human Rights
top of previous sentences. In April 2023, former CNRP
Hun Sen has been the nation’s head of government for 38
Vice-President Kem Sokha was convicted of treason and
years, including as premier of the Vietnam-backed Republic
sentenced to 27 years of house arrest. Since 2021,
of Kampuchea between 1985 and 1993. Since 1993, he has
Cambodian courts have convicted over 115 opposition
headed the Cambodian People’s Party (CPP) and served as
politicians and activists of crimes against the state.
prime minister of Cambodia, including as “co-premier”
between 1993 and 1997. The king of Cambodia and head of
Figure 1. Cambodia at a Glance
state, a largely symbolic figure, is Norodom Sihamoni, who
succeeded his father in 2004.
On July 26, 2023, following his landslide win in the
National Assembly election, Hun Sen announced that he
would step down as prime minister while retaining his
leadership of the CPP. In a widely expected move, Hun Sen
stated he would hand power to his eldest son, West Point
graduate Hun Manet, who was elected to the National
Assembly for the first time. Little is known about the
political views of Hun Manet, although some observers do
not expect him to usher in major changes in the near term.

Source: CRS (map) and Central Intelligence Agency, The World
Between 1993, when the United Nations administered
Factbook, 2023.
Cambodia’s first national election following the 1991 Paris
Agreements that ended the country’s civil war, and 2017,
Since the lead up to the 2018 national election, Hun Sen
democratic institutions and practices had gradually evolved
clamped down on civil society and circumscribed the space
to allow widespread civic and political participation. During
for independent media. In 2017, the Cambodian Foreign
this period, Cambodia developed a vibrant civil society and
Ministry applied a restrictive new law on nongovernmental
a relatively free print media. The opposition Cambodian
organizations (NGOs) to expel the U.S. government-funded
National Rescue Party (CNRP) made significant gains in
National Democratic Institute, which was engaged in
the 2013 parliamentary election and 2017 local elections.
democracy promotion programs in Cambodia, on the
Meanwhile, Hun Sen employed a variety of means to stay
grounds the Institute was not registered with the Cambodian
in power, including through electoral victories; legal and
government. Roughly 25 human rights NGOs still operate
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Cambodia
in Cambodia, according to the Department of State,
abandoned buildings in Sihanoukville following the halt of
although they face increasing repression. Human rights
construction during the COVID-19 pandemic.
groups report that the Cambodian government restricts
freedom of expression and the press in various ways,
Ream Naval Base
including through defamation lawsuits, criminal
Since 2018, U.S. concerns have grown regarding PRC
prosecutions, tax penalties, disapproval of permits and
construction activities at Ream Naval Base. Cambodian
licenses, and harassment of journalists. In February 2023,
officials have stated the upgrades, including a new pier,
the Cambodian government revoked the media license of
support Cambodian military modernization. Some experts
Voice of Democracy, a local radio and online media outlet,
say China may aim to use Ream to berth PRC military
for “disseminating false information.” Some observers
supply ships and accommodate visiting PRC warships,
surmised that the action may be related to the outlet’s
enabling China to project power further from the Chinese
investigative reporting on human rights issues.
mainland. Cambodian officials emphasize that hosting a
foreign military facility would be unconstitutional, although
Economy and PRC Influence
the government may provide access to multiple countries.
Since the early 1990s, Cambodia has made progress on
PRC officials reportedly have denied that Cambodia has
some socioeconomic indicators, although it remains one of
given China exclusive rights to Ream.
the poorest countries in Asia, and poverty and malnutrition
in rural areas persist. The economy—which was largely
Foreign Assistance and Sanctions
destroyed under the leadership of the Communist Party of
Cambodia is dependent upon foreign aid. Official
Kampuchea, also known as the Khmer Rouge (1975-1979),
Development Assistance (ODA) for Cambodia from
and subsequent conflicts—achieved an average annual
Organization for Economic Cooperation and Development
growth rate of 8% between 1998 and 2019, largely driven
member countries and international financial institutions
by foreign investment and development of the agricultural,
totaled $1.02 billion in 2021. The United States provided
garment, construction, real estate, and tourism sectors.
$100.5 million in assistance to Cambodia in FY2022,
Following a downturn in 2020-2021 due to the Coronavirus
mostly channeled through NGOs. Program areas include
Disease 2019 (COVID-19) pandemic, the economy has
maternal and child health, combating infectious diseases,
rebounded somewhat, and the Asian Development Bank
basic education, human rights and democracy, reducing
forecasts it will achieve a growth rate of over 5.0% in 2023.
human trafficking, economic growth, and natural resource
management. Peace Corps volunteers teach English and
The United States is Cambodia’s second-largest trading
train English teachers in Cambodian villages. From 1993 to
partner after China, and its largest export market,
2022, the U.S. government provided $192 million for
purchasing 44% of Cambodia’s exports in 2022, according
unexploded ordnance (UXO) removal and related
to the Economist Intelligence Unit (EIU). Cambodian
programs. Cambodia is among the countries most heavily
exports to the United States totaled $12.2 billion in 2022,
contaminated by UXO left from U.S. bombing during the
while imports from the United States totaled $449 million.
Vietnam War, the Vietnamese invasion of Cambodia in
The largest Cambodian export items to the United States
1978, and civil wars during the 1970s and 1980s.
are apparel and leather goods, and the largest U.S. import
items are vehicles. Hun Sen reportedly welcomes greater
Since FY2017, State, Foreign Operations, and Related
U.S. investment. The garment sector—which is largely run
Programs appropriations legislation places conditions on
by companies from China, Hong Kong, and Taiwan—forms
some U.S. assistance to Cambodia due to human rights and
a pillar of Cambodia’s economy, employing roughly one
other concerns. The Consolidated Appropriations Act,
million workers, predominantly women. The EIU reported
FY2023 (P.L. 117-328, Section 7043(b)) prohibits
that garments and footwear accounted for 54.8% of
assistance to the government of Cambodia, unless the
Cambodian goods exports in 2022.
Secretary of State certifies that Cambodia is taking effective
steps to assert its sovereignty against interference by the
China is Cambodia’s largest source of imports, including
PRC, including by verifiably maintaining the neutrality of
fabric for the kingdom’s garment industry. The PRC is the
Ream Naval Base; ceasing violence, threats, and
kingdom’s largest foreign investor and a major source of
harassment against civil society and political opposition;
financing, holding 42.7% of its foreign debt in 2021,
and respecting rights, freedoms, and responsibilities
according to the EIU. PRC-backed infrastructure and
enshrined in the 1993 Constitution of Cambodia, among
hydropower projects and business ventures have brought
other provisions. In December 2021, the Commerce and
some developmental benefits while also creating
State Departments imposed export restrictions on U.S.
environmental problems, contributing to corruption, and
national security-controlled items and a ban on arms sales
causing disruptions and dislocation among some local
to Cambodia due to human rights concerns. Since 2018, the
communities. PRC investment has been particularly
U.S. government has sanctioned five Cambodian officials
concentrated in the city of Sihanoukville and elsewhere
and family members for corruption and human rights
along the Gulf of Thailand, with development projects
abuses pursuant to Executive Order 13818, which
including the construction of tourist and gambling resorts,
implements the Global Magnitsky Human Rights
industrial zones, an international airport at Dara Sakor, and
Accountability Act (Title XII, Subtitle F of P.L. 114-328).
a deep-water seaport in Kampot province. Some U.S.
analysts express concern that the airport and seaport could
For further information, See CRS Report R47311,
be used for PRC military as well as civilian purposes. PRC
Cambodia: Background and U.S. Relations.
investors reportedly have left over 1,000 unfinished and
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Cambodia

IF10238
Thomas Lum, Specialist in Asian Affairs


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https://crsreports.congress.gov | IF10238 · VERSION 10 · UPDATED

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