U.S. Strategy for Engagement in Central America: Policy Issues for Congress

Summary

Central America has received renewed attention from U.S. policymakers over the past few years as the region has become a major transit corridor for illicit drugs and a significant source of irregular migration to the United States. These narcotics and migrant flows are the latest symptoms of deep-rooted challenges in several countries in the region, including widespread insecurity, fragile political and judicial systems, and high levels of poverty and unemployment. Although the Obama Administration and governments in the region launched new initiatives designed to improve conditions in Central America, the future of those efforts will depend on the decisions of the Trump Administration and the 115th Congress.

U.S. Strategy for Engagement in Central America

The Obama Administration determined it was in the national security interests of the United States to work with Central American governments to address conditions in the region. Accordingly, the Obama Administration launched a new, whole-of-government U.S. Strategy for Engagement in Central America. The new strategy takes a broader and more comprehensive approach than previous U.S. initiatives in the region and is based on the premise that efforts to promote prosperity, improve security, and strengthen governance are mutually reinforcing and of equal importance. The new strategy focuses primarily on the “northern triangle” countries of Central America—El Salvador, Guatemala, and Honduras—which face the greatest challenges. Nevertheless, it also provides an overarching framework for U.S. engagement with the other countries in the region: Belize, Costa Rica, Nicaragua, and Panama. The new U.S. strategy and the northern triangle governments’ Alliance for Prosperity initiative have similar objectives and fund complementary efforts; however, they have prioritized different activities.

Initial Funding and Conditions

Congress has appropriated $1.3 billion to begin implementing the new Central America strategy, dividing the funds relatively equally among efforts to promote prosperity, strengthen governance, and improve security. This figure includes $560 million appropriated in FY2015 and $750 million appropriated in FY2016 (through P.L. 113-235 and P.L. 114-113, respectively). Congress placed strict conditions on the FY2016 aid, requiring the northern triangle governments to address a range of concerns, including border security, corruption, and human rights, to receive assistance. As a result of those legislative requirements and delays in the budget process, most of the FY2016 funding did not begin to be delivered to Central America until early 2017.

Future Appropriations and Other Policy Issues

Congress is still considering FY2017 appropriations and soon will begin deliberating over President Trump’s FY2018 budget request. The Obama Administration requested $750 million for the Central America strategy in FY2017, but assistance for the region currently is being provided through a continuing resolution (P.L. 114-254) that funds foreign aid programs at the FY2016 level minus an across-the-board reduction of 0.1901%, until April 28, 2017. The Trump Administration’s FY2018 budget blueprint proposes deep cuts to foreign aid globally, but does not specify how those cuts would affect Central America.

Congress may examine a number of policy issues as it deliberates on the future of the Central America strategy. These issues include the extent to which Central American governments are demonstrating the political will to undertake domestic reforms; the utility of the conditions placed on assistance to Central America; and the potential implications of changes to U.S. immigration, trade, and drug control policies for U.S. objectives in the region.