Cuba-U.S. Relations: Should the United States Reexamine Its Policy?

This document also available in PDF Image . The recent exodus of Cubans seeking to reach the United States has prompted many observers, including some Members of Congress, to call for a post-Cold War reexamination of U.S. policy toward Cuba. Some are calling for a moderation of U.S. policy toward Cuba, with policy approaches ranging from a strategy of so-called "constructive engagement" to a strategy of "relative normalization." This report outlines the current U.S. policy approach toward Cuba and discusses the option of moderating policy and what this might entail; it then examines the arguments in favor of and arguments opposing such a policy approach. Those asserting that the United States should moderate its policy toward Cuba believe that sowing the seeds of reform -- through increased exchanges, trade, and diplomatic dialogue -- will stimulate and strengthen forces for peaceful change in Cuba. Supporters of such an approach stress the importance to the United States of avoiding violent change in Cuba, with the prospect of a mass exodus to the United States and the potential of involving the United States in a civil war scenario. They argue that since Castro's demise does not appear imminent, the United States should espouse a more realistic approach in trying to induce change in Cuba. Supporters of changing policy also point to broad international support for lifting the U.S. embargo, to the losses to U.S. businesses because of the embargo, and to the increased suffering of the Cuban people because of the embargo. Proponents of change argue that the United States should adhere to some consistency in its polices with the world's few remaining Communist governments, and also maintain that moderating policy will help advance human rights in Cuba. Opponents of changing U.S. policy maintain that the current two-track policy of isolating Cuba, but reaching out to the Cuban people through measures of support, is the best means for realizing political change in Cuba. They point out that the Cuban Democracy Act of 1992 sets forth a road map for what steps Cuba needs to take in order for the United States to normalize relations, including lifting the embargo. They argue that softening U.S. policy at this time without concrete Cuban reforms would boost the Castro regime politically and economically, enabling a continuance of the Communist regime. Opponents of softening U.S. policy argue that the United States should stay the course in its commitment to democracy and human rights in Cuba; that sustained sanctions can work; and that the sanctions against Cuba have only come to full impact with the loss of large subsidies from the former Soviet bloc. Congress has gone on record for continuing to isolate the Castro regime while at the same time increasing support for the Cuban people. Opponents of softening U.S. policy argue that Cuba's failed economic policies, not the U.S. embargo, are the causes of the economy's rapid decline. They maintain that U.S. businesses are not losing out because of the embargo since Cuba has one of the world's worst investment environments.