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USAID/Cuba 

Operational Plan 

FY 2006 

June 15, 2006 
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Please Note: 

The attached RESULTS INFORMATION is from the FY 2006 Operational Plan and was assembled 

and analyzed by the country or USAID operating unit identified on the cover page. 

The Operational Plan is a "pre-decisional" USAID document and does not reflect results stemming 

from formal USAID review(s) of this document. 

Related document information can be obtained from: 

USAID Development Experience Clearinghouse 

8403 Colesville Road, Suite 210 

Silver Spring, MD 20910 

Telephone: (301) 562-0641 

Fax: (301) 588-7787 

Email: docorder@dec.cdie.org 

Internet: http://www.dec.org 

Portions released on or after July 1, 2006 
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Program Performance Summary FY 2005: A. Program Performance Summary 

Program Narrative (FY 2005): OU Performance Narrative 

Country Setting: 

Cuba is one of the most economically and politically repressed countries in the world. The Heritage 

Foundation's 2005 Index of Economic Freedom, released in January 2005, places Cuba 149th among the 

155 countries--just below Iran--at the bottom of all "economically repressed regimes" in the world. 

Freedom House lists the Government of Cuba (GOC) among the 8 "most repressive regimes" in the 

world, with failing scores on political rights and civil liberties. The reasons are apparent. The GOC violates 

fundamental human rights and directly controls mass media, trade unions, universities, and all formal 

economic activity. 

For forty-seven years, the Cuban government has maintained power through vertical and centralized 

control over all institutions of Cuban society. Cubans as a result, including those who belong to 

professional associations and NGOs, know little about the functioning of democratic civil society. It is in 

the U.S. interest to continue to provide informational and material support to Cuban citizens and 

independent nongovernmental organizations in Cuba that wish to promote democratic change. 

During FY 2005, Cuban civil society increased its activity in spite of the Cuban government’s March 2003 

arrest and imprisonment of 75 activists, bringing the total number of political prisoners to more than 300. 

Activity increased in spite of increased violence by Cuban authorities attempting to frighten and 

marginalize human rights activists, independent librarians, independent journalists, and other 

independent groups. Even though the Cuban government, under international pressure, released 

fourteen prisoners for health reasons, the poor treatment and humiliating conditions of the remainder is 

well documented. 

The September 2005 report of the Economic Intelligence Unit projects Cuba’s economy will grow 5% in 

2005-2006, up from 4% last year and 2.9% the year before, due to increased assistance from China and 

Venezuela, remittances from Cubans living overseas, expanded nickel exports and continued growth of 

tourism. In spite of higher international prices for sugar, Cuba will soon become a net importer of sugar. 

Cuba's 2004-2005 sugar harvest was only 1.3 million metric tons -- a 45% decrease from the harvest of 

2.5 million metric tons the year before and far removed from the 7 million metric ton harvests of the early 

days of the revolution. 

In FY 2005, Cuba continued its attempts to off-set the nearly $5 billion annual loss of former Soviet 

subsidies by actively seeking new sources of foreign investment, particularly for the mining, energy and 

tourism industries. Renewed agricultural imports from some U.S. agricultural export states, highly 

subsidized oil imports from Venezuela, and new investment from Canada, China and Spain contribute to 

the economic outlook for FY 2006. Hurricane's Wilma's destruction caused damage to citrus and poultry 

production and may negatively affect FY 2006 tobacco harvests. Tobacco ranks fourth in Cuba's export 

earnings. 

Power generation suffers from poorly-maintained antiquated equipment compounded by a dependence 

on high sulfur domestic oil. Lengthy power outages during FY 2005 closed factories, cut short school 

days, and left many without the means to preserve monthly food rations. 

The USAID Program: 

In FY 2005, the USAID/LAC Cuba program continued to implement recommendations from the May 2004 

report of the Presidential Commission for Assistance to a Free Cuba for hastening a peaceful transition to 

democracy in Cuba. Authorization for the program stems from the Cuban Democracy Act of 1992 which 

encourages the President to provide assistance "...through appropriate nongovernmental organizations 

(NGOs), for the support of individuals and organizations to promote nonviolent democratic change in 

Cuba." The Cuban Liberty and Solidarity (LIBERTAD) Act of 1996 further elaborates the types of 
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assistance and support the President is authorized to provide, including: published and informational 

matter (e.g. books, videos, and cassettes) on democracy, human rights and market economies; 

humanitarian assistance to victims of political repression and their families; support for democratic and 

human rights groups in Cuba; and support for visits by and permanent deployment of independent 

international human rights monitors in Cuba. The Act also authorizes the planning of assistance to a 

future transition government in Cuba. 

USAID awarded its first grant in FY 1996, aimed at promoting a democratic transition in Cuba. In FY 

2005, the objectives remain the same with USAID's Cuba Program Strategic Objective (SO), Civil Society 

Developed through Information Dissemination. The program builds civil society by increasing the flow of 

accurate information on democracy, human rights, and free enterprise to, from, and within Cuba. The 

program achieved substantial results in FY 2005; for the first time measuring success via the SO indicator 

“Increased Number of Public Acts of Non-Violent Civil Protest.” Independent Cuban activists initiated 

more than 1800 acts of civic resistance -- an average of 150 acts of civil protest each month, compared to 

110 per month the year before*. 

In Cuba, program beneficiaries include groups of independent librarians, journalists, human rights and 

labor activists, many of whom are women. Globally, the Cuba Program assists six solidarity committees in 

Europe and Latin America that encourage the international community to provide additional moral and 

material support. The program also helps fund international conferences to increase international 

awareness of Cuban government repression and to encourage international support for Cuban civil 

society. 

The most unique aspect of the USAID Cuba Program is that it directly supports independent activists in 

Cuba, whom the regime labels "counter-revolutionaries" and "dissidents," ostracizing them, depriving 

them of employment and subjecting them to physical abuse. Those marginalized by the regime routinely 

suffer public harassment, job loss, defamation and destruction to home and property, exclusion from 

public places, and harassment of their school-age children. 

Key FY 2005 Achievements: 

Increased Solidarity Built with Cuban Human Rights Activists: In FY 2005, program partners delivered 

more than 100,700 pounds of food and medicine to families of political prisoners, human rights activists, 

and other victims of repression throughout Cuba. In addition, after Hurricane Dennis hit the island in 

August 2005, program partners, with funding augmented by the USAID Office of Foreign Disaster 

Assistance, quickly provided food, shelter and other basic needs to Cuban activists who, through their 

broad on-island networks, helped thousands who had lost their homes and livelihood. 

The program also helped attract increased international support for Cuban activists, and especially to the 

peaceful public protests of the wives of political prisoners. These women, dressed all in white, began 

weekly marches through the streets of Havana, attracting international media attention. The European 

Parliament, reacting to press reports, awarded its prestigious Sakharov Prize for Freedom to these 

“Ladies in White.” As reported by the Inter Press News Service Agency, "The decision to grant the award 

to the ladies in white was praised by dissident leaders such as Oswaldo Payá, the head of the Christian 

Liberation Movement, who received the Sakharov Prize himself in 2002." 

Greater voice for Cuba's Independent Journalists: Cuba Program partners published via the internet more 

than 3,000 reports from Cuba's independent journalists in FY 2005, bringing the total number of published 

reports since the program’s inception to approximately 20,000. Program partners distributed the reports in 

hard copy newsletters as well as by electronic mail throughout the island and abroad. In FY 2005, the 

program provided training in journalism through correspondence courses and teleconferences to more 

than 100 independent journalists, bringing the total number of journalists the program has trained to more 

than 180. At the end of FY 2005, fourteen Cuban independent journalists remained in prison and over 20 

have been forced into exile. Forty-eight new trainees have replaced them. 

Development of Independent Cuban Non-Governmental Organizations Enhanced: During FY 2005, 
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program partners sent 50 international experts into Cuba to help develop and train independent Cuban 

NGOs. Partners also provided thousands of books, newsletters, videos and other informational materials, 

as well as office equipment to improve the management capacity of Cuban NGOs and their ability to 

support local community needs. The independent library movement witnessed establishment of 19 new 

independent libraries during FY 2005. 

Direct Outreach to the Cuban People Increased: In FY 2005, in spite of active resistance from the Cuban 

government, program partners provided more than 5,400 short wave radios to the Cuban people, 

enabling families and individuals to listen to international programming of their choice. This brings the 

total number of radios provided since the beginning of the program to approximately 20,000. Program 

partners also provided more than 70,000 books, and more than one million newsletters, brochures and 

other informational materials to the Cuban people during FY 2005. This brings overall program delivery of 

these materials since the beginning of the program to more than three million books, newsletters and 

other informational materials. The program distributed to Cuban households every month approximately 

100,000 newsletters. 

The USAID Cuba Program also assisted direct outreach activities of the U.S. Interests Section in Havana, 

including multi-media and internet access programs for Cuban citizens and other visitors. 

Increased Planning for a Future Political Transition: In FY 2005, Cuba Program partners supported the 

development of plans for assistance to a post-Castro transition government in Cuba. The University of 

Miami's Cuban Transition Project conducted seminars in Buenos Aires and Madrid to encourage 

international participation in transition planning, drawing on the transition experience in Eastern Europe, 

the former Soviet Union, Spain, Chile, Nicaragua, and other countries. The University of Miami provided 

Spanish language texts of seminar papers and proceedings to Cuban activists and to the Cuban people. 

A new USAID collaborative agreement with Creighton University (Omaha) will fund development of a 

model property claims tribunal to assist future efforts to resolve property disputes resulting from the 

Castro government’s confiscation of private property from U.S. and Cuban citizens. 

Donor Relations: 

U.S. relations with Cuba remained hostile in FY 2005. The European Union found that its common 

position of “constructive engagement” with the Cuban government brought no positive political or 

economic change or improvement in respect for human rights. However, new E.U. members from the 

former Soviet block proved more inclined to provide moral, material, and informational support to Cuba’s 

human rights activist, to call for the release of political prisoners, and to condemn the continuing human 

rights abuses of the Cuban government. 

In recent years, bilateral donors in Cuba have included China, Venezuela, Vietnam, Iran, North Korea, 

Spain, Canada, Germany, Italy, Japan and France. Canada’s programs focus on modernization of the 

state, civil society and participatory development, social sector development, and forest management. 

Spain’s assistance focuses on water and sanitation, humanitarian assistance, education, and agricultural 

production. A number of United Nations (UN) organizations have active programs. The UN Development 

Program concentrates aid in social and environmental sectors, and with GOC economic reforms. The 

World Food Program has emergency and development food aid programs for provinces in eastern Cuba. 

UNICEF improves access to safe drinking water and basic sanitation in rural communities. Other UN 

organizations in Cuba include the Pan American Health Organization and the Food and Agriculture 

Organization. 

Major Challenges: 

Cuba is a totalitarian state, deliberate in its attempt to monitor, influence or censor any information 

entering, leaving, or circulating within the island. The government routinely opposes and seeks to block 

or interfere with the work of program partners. The USAID Cuba program, working under such restraints, 

measures success of its objective through a proxy SO indicator (public acts of Cuban civil society) as well 

as through measurement of intermediate results. To highlight the sensitivity of Cuba Program activities on 
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the island, it is important to note under current Cuban Law 88, the Law for the Protection of National 

Independence and the Economy of Cuba, adopted by Cuba's National Assembly in February 1999, and 

Article 91 of the Cuban Penal Code allow prison terms of five to 20 years, death (or life imprisonment 

when accompanied by Law 87 adopted in 1999) for anyone collaborating with the U.S. or other foreign 

entities which could undermine the stability of the Cuban state. In the March 2003 crackdown these laws 

alone were used to imprison 26 of the 75 dissidents arrested. 

Cuban government opposition to the program is well documented in numerous statements made by Fidel 

Castro and other GOC officials on Cuban radio and television and in the Cuban press. Systematic 

opposition by the Cuban government is the single greatest obstacle in achieving results under this SO. 

The regime continues to violate the fundamental human rights of Cuban citizens by restricting free 

assembly, freedom of speech, freedom of religion, the right to private property, the right to collective 

bargaining, and other basic rights. Cubans who call for dialogue or peaceful democratic change are 

subject to arrest and imprisonment on charges of “disrespect” or “dangerousness.” 

As of 1994, more than 2,000 so-called “NGOs” were registered with the Cuban Ministry of Justice. Most 

of these organizations are government led and operated, and are, therefore, not eligible for assistance 

under this program. 

However in recent years, a few independent groups and associations have begun in Cuba. Most are not 

formally recognized by or registered with the Cuban government. At present, these Cuban NGOs, 

professional associations and other groups vary in their "independence" from the GOC. Although none 

are completely free from government interference, some have developed greater autonomy than others, 

have individual members who favor peaceful democratic change, and should be exposed to the ideas, 

norms and practices of civil society in democratic countries. 

Unfortunately, the GOC began tightening restrictions and reducing the number of small businesses active 

within Cuba in FY 2005. This has severely impeded the ability of citizens to augment average monthly 

salaries of $40 USD with income gained through the illegal but strong informal sector. Taxi rickshaws, 

eating "palabras", and informal business have been frequent targets of the Cuban police resulting in many 

businesses closures, fines, and in some cases arrest and imprisonment. 

Integrated Programming: 

The USAID Cuba Program works closely with many Department of State (DOS) offices and bureaus. The 

Cuba Program is most closely affiliated with the Bureau of Western Hemisphere Affairs, Office of Cuban 

Affairs, which assists in the design, selection, implementation and management of Cuba Program 

partners. Additionally, the Cuba Program maintains regular contact with the U.S. Interests Section in 

Havana, in which Havana DOS officers regularly meet with Cuba Program funded partners and 

individuals and report back to the USAID Cuba Program on overall accomplishments, obstacles and 

issues affecting program implementation and impact. The DOS's Bureau of Democracy, Human Rights 

and Labor separately contributes funds a few of USAID's Cuba Program partners. Cuba Program 

partners frequently augment the USAID funded programs with these resources and private financial 

donations which furthers the successful impact of U.S. activities on the island. The National Endowment 

for Democracy, a private, non-profit, non-partisan organization with an annual congressional 

appropriation also provides financial support to some of USAID's Cuba Program partners. 

Gender: 

Many women are prominent leaders among the Cuban opposition. The USAID Cuba Program does not 

specifically target gender in its programs but does provide support to independent groups and individuals 

on the island, including women such as the “Ladies in White". 

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*Statistics are compiled in "Steps to Freedom" an annual report published by (Directorio) the Cuban 

Democratic Directorate, sub-grantee of USAID's Cuba Program partner, the International Republican 
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Institute. The report is published in affiliation with the Center for the Study of a National Option (a nonUSAID partner). 
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FY 2006 Program 

SO: 516-001 Civil Society Developed Through Information Dissemination 

Strengthen Civil Society 

Strengthen Civil Society ($8,910,000 ESF and $1,980,000 DA). ESF funds are focusing on programs that 

increase solidarity with Cuban human rights activists, increase direct outreach to the Cuban people, and 

increase planning for a future political transition. ESF funds will also give greater voice for Cuba's 

independent journalists and enhance development of independent Cuban NGOs. USAID's program is 

reaching out to the Cuban people by transmitting accurate information on democracy, human rights and 

free enterprise to Cuban citizens. Information will flow via web pages which publish reports from 

independent journalists in Cuba, and through newsletters, faxes and e-mails to Cubans on the island. 

The program continues to work with U.S. universities, U.S. and U.S.-based Cuban NGOs, and 

independent Cuban citizens, to develop specific plans for assistance to a transition government, and to 

train prospective Cuban leaders in the functioning of free market economies. In addition, USAID DA 

funds continue to provide humanitarian support to Cuba's political prisoners, their families and those 

affected by natural or man-made emergencies on the island. The program will strengthen the capacity of 

independent Cuban NGOs through exchange visits between Cuba, the United States and other nations. 

The U.S. Department of State (DOS) is contemplating a transfer of a portion of these funds to the 

DOS/Bureau of Democracy, Human Rights and Labor for implementation. 

FY 2007 Program 

SO: 516-001 Civil Society Developed Through Information Dissemination 

Strengthen Civil Society 

Strengthen Civil Society ($9,000,000 ESF). USAID will continue building solidarity with Cuba’s human 

rights activists by continuing to support distribution of reports by Cuba's independent journalists and 

transmitting accurate information on democracy, human rights and free enterprise. The program will 

continue working with U.S. universities, U.S. and Cuban NGOs, and independent Cuban citizens, and to 

further transition planning. The program will continue to train prospective Cuban leaders in the functioning 

of free market economies. In addition, USAID will continue to provide humanitarian assistance to political 

prisoners, their families and others negatively affected by natural or man-made emergencies. Solidarity 

with independent human rights and civil society groups will be further strengthened via support of 

exchange visits of Cuban NGOs between Cuba, the United States and third countries. Exchange visits 

will enhance the capacity and effectiveness of independent Cuban NGOs and inform Cuban society about 

the functioning of a democratic society and individual entitlement to basic human rights and freedom of 

expression. 
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Results Framework 

516-001 Civil Society Developed Through Information Dissemination 

Program Title: Civil Society Developed