Cuba: U.S. Response to the 1994 Cuban Migration Crisis, Report to Congressional Requesters [open pdf - 228KB]
"In response to your request, we reviewed the U.S. government's actions to address the mass exodus of people from Cuba in the summer of 1994. Our objectives were to describe how U.S. policy toward those seeking to leave Cuba has changed since that time, identify the agencies and costs to the U.S. government associated with the exodus of Cubans, assess the capabilities of the U.S. Interests Section in Havana to process applicants seeking legal entry into the United States, and evaluate the adequacy of living conditions at the Cuban safe haven camps at the U.S. Naval Station, Guantanamo Bay. […] For over 30 years, fleeing Cubans had been welcomed to the United States. However, the U.S. government reversed this policy on August 19, 1994, when President Clinton announced that Cuban rafters interdicted at sea would no longer be brought to the United States. Instead, they would be taken to safe haven camps at the U.S. Naval Station, Guantanamo Bay, Cuba, with no opportunity for eventual entry into the United States other than by returning to Havana to apply for entry through legal channels at the U.S. Interests Section. On September 9, 1994, the U.S. and Cuban governments agreed that the United States would allow at least 20,000 Cubans to enter annually in exchange for Cuba's pledge to prevent further unlawful departures by rafters. On May 2, 1995, a White House announcement was released stating that Cubans interdicted at sea would not be taken to a safe haven but would be returned to Cuba where they could apply for entry into the United States at the Interests Section in Havana."
Government Accountability Office (GAO): http://www.gao.gov/