Last week, U.S. President Barack Obama and Cuban President Raul Castro agreed to an exchange of prisoners being held on espionage charges. In addition, Washington and Havana agreed to hold discussions with the goal of establishing diplomatic relations between the two countries. No agreement was reached on ending the U.S. embargo on Cuba, a step that requires congressional approval.

It was a modest agreement, striking only because there was any agreement at all. U.S.-Cuba relations had been frozen for decades, with neither side prepared to make significant concessions or even first moves. The cause was partly the domestic politics of each country that made it easier to leave the relationship frozen. On the American side, a coalition of Cuban-Americans, conservatives and human rights advocates decrying Cuba’s record of human rights violations blocked the effort. On the Cuban side, enmity with the United States plays a pivotal role in legitimizing the communist regime. Not only was the government born out of opposition to American imperialism, but Havana also uses the ongoing U.S. embargo to explain Cuban economic failures. There was no external pressure compelling either side to accommodate the other, and there were substantial internal reasons to let the situation stay as it is……

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