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*~ Cong essional Research Service
Hon jihe eoisl4vedebalesn'e1914
July 18, 2017
Cuba: U.S. Policy Overview
Since the early 1960s, when the United States imposed a
trade embargo on Cuba, the centerpiece of U.S. policy
toward Cuba has consisted of economic sanctions aimed at
isolating the Cuban government. In December 2014,
however, the Obama Administration initiated a major
policy shift, moving away from sanctions toward a policy
of engagement and the normalization of relations. The
policy change included the rescission of Cuba's designation
as a state sponsor of international terrorism in May 2015;
the restoration of diplomatic relations in July 2015; and
steps to increase travel, commerce, and the flow of
information to Cuba.
In June 2017, President Trump unveiled his policy on Cuba.
The policy leaves most of the Obama-era policy changes in
place but will roll back some efforts to normalize relations,
including restrictions on people-to-people educational
travel to Cuba and on financial transactions with companies
controlled by the Cuban military.
Government-to-Government Engagement. With the
restoration of relations in 2015, government-to-government
engagement increased significantly. U.S. and Cuban
officials held five Bilateral Commission meetings, the most
recent in December 2016, to coordinate efforts to advance
normalization. Officials negotiated numerous bilateral
agreements, including on such issues as environmental
cooperation, direct mail, civil aviation, maritime navigation,
agriculture, health cooperation, counternarcotics
cooperation, federal air marshals, cancer research,
seismology, meteorology, wildlife conservation, animal and
plant health, oil-spill preparedness and response, law
enforcement cooperation, search and rescue, and the
delimitation of the U.S.-Cuban maritime boundary in the
eastern Gulf of Mexico. Bilateral dialogues were held on
these and other issues, including counterterrorism, U.S.
property claims, human rights, renewable energy and
efficiency, trafficking in persons, and migration.
In June 2017, President Trump issued a national security
presidential memorandum on Cuba replacing President
Obama's October 2016 presidential policy directive that
had laid out objectives for the normalization process. The
new policy emphasizes that engagement should advance the
interests of the United States and the Cuban people.
Travel, Commerce, and the Flow of Information to and
from Cuba. The Obama Administration's policy change of
increasing travel, commerce, and the flow of information to
and from Cuba required amendments to U.S. regulations
administered by the Department of the Treasury, Office of
Foreign Assets Control (Cuban Assets Control Regulations
[CACR]; 31 C.F.R. Part 515) and the Department of
Commerce, Bureau of Industry and Security (Export
Administration Regulations [EAR]; 15 C.F.R. Parts 730-
774). To implement the policy, the two agencies issued five
rounds of amendments to the regulations, the last in
October 2016. President Trump's announced tightening of
restrictions on travel and commerce also will require
amendments to the regulations; until those amendments are
issued, the Obama-era regulations remain in place.
* Travel. The regulations authorize a general license for
the existing 12 categories of permissible travel, meaning
that travelers in these categories do not have to apply to
the Treasury Department for permission. Travel agents
and air and vessel carriers also are able to provide
services for travel to Cuba under a general license.
Authorized travelers can bring back Cuban products as
accompanied baggage for personal use, including
alcohol and tobacco products. Travel for tourism
remains prohibited. In March 2016, people-to-people
educational travel became authorized for individual
travelers; President Trump's new policy, however, will
require that such travel take place under the auspices of
an organization specializing in people-to-people
educational travel.
* Remittances. Donative remittances to Cuban nationals
are authorized without limit. Authorized travelers may
carry an unlimited amount of remittances to Cuba.
Remittances to individuals and independent
nongovernmental organizations in Cuba are authorized
without limit for certain activities.
* Trade and Telecommunications. The export of certain
commercial goods and services to Cuba's private sector
is authorized, including building materials for private
residential construction, goods for use by private-sector
Cuban entrepreneurs, and agricultural equipment. The
export of certain consumer goods sold online or through
other means directly to eligible individuals in Cuba for
personal use is authorized. Certain goods produced by
independent Cuban entrepreneurs are eligible to be
imported into the United States.
The EAR set forth a general policy of approval for
exports to Cuba for the environmental protection of air
quality, waters, and coastlines; civil aviation and
commercial aircraft safety; telecommunications; U.S.
news bureaus; human rights organizations and
nongovernmental organizations; and agricultural
commodities (such as insecticides, pesticides, and
herbicides) that fall outside the scope of those allowed
under a license exception. Licenses for certain types of
exports are considered on a case-by-case basis,
including exports to state-owned enterprises, agencies,
and other organizations providing goods and services for
the use and benefit of the Cuban people.
The commercial export of certain consumer
communication devices and related software_
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