The Organization of American States (OAS) is a multilateral regional body focused on human rights, electoral oversight, social and economic development, and security in the Western Hemisphere. While the organization is recognized by many foreign policy experts as an important forum for regional diplomacy, critics say ideological divisions among its members have hampered its efforts to promote democratic principles. The OAS has come under renewed focus in recent years for its criticism of Venezuelan President Nicolas Maduro and its role in Bolivian President Evo Morales’s resignation.
When was the OAS created?
The United States and twenty other governments in the Western Hemisphere signed the OAS charter in 1948 to increase regional security and commercial cooperation. Additionally, the United States hoped the new organization would serve as a bulwark against the spread of communism. Member states pledged to strengthen regional peace and security, promote representative democracy, and encourage economic and social cooperation. The OAS emerged a year after member states signed the Inter-American Treaty of Reciprocal Assistance, known as the Rio Treaty, which established a defensive military alliance in the region. Since then, its membership has increased to thirty-five states; there are seventy permanent observers.
How is the OAS organized?
The OAS is headed by Secretary-General Luis Almagro, Uruguay’s former foreign minister, who assumed office in 2015. It comprises three main bodies [PDF]: the General Assembly, the principal decision-making organ, which meets annually; the Permanent Council, which manages day-to-day affairs; and the General Secretariat, which implements policies made by the other two bodies.
The OAS is headquartered in Washington, DC, and has more than seven hundred employees throughout the region. It convenes a Summit of the Americas every two to four years, during which national leaders discuss multilateral initiatives and work to reinforce diplomatic ties. The most recent summit took place in April 2018 in Lima, Peru, where OAS members addressed the theme “democratic governance against corruption” against the backdrop of Venezuela’s volatile political situation and Peruvian President Pedro Pablo Kuczysnki’s resignation in connection with Brazilian graft investigations. Donald J. Trump canceled plans to attend the summit, making it the first to be held without a sitting U.S. president. Nonetheless, his administration said the United States would bid to host the 2021 summit.
What does the OAS do?
Its primary functions are promoting democracy, coordinating security and law enforcement operations, providing technical and financial assistance for development projects, and monitoring human rights through the inter-American legal system. Several autonomous institutions carry out OAS functions, including the Inter-American Commission on Human Rights (IACHR) and the Inter-American Juridical Committee.
In 2019, the OAS has sent election observation missions to Bolivia, El Salvador, and Guatemala, among other countries. Other recent initiatives include establishing a working group [PDF] to address mass migration from Venezuela; supporting the creation of an anticorruption commission in El Salvador; and collaborating with member governments, regional institutions, and private companies to improve cybersecurity.
What is its budget?
The OAS has a regular fund that supports the General Secretariat, and a specific fund geared toward particular programs and initiatives. The General Assembly finances the regular fund by setting country quotas, which are based on members’ capacities to pay. The OAS’s 2019 budget [PDF] allocates almost $83 million to the regular fund, to which the United States is required to provide [PDF] nearly $51 million, or about 60 percent. Between January and September 2019, the United States also voluntarily gave [PDF] more than $18 million to the specific fund, accounting for about 40 percent of contributions in that period.
What are its strengths?
The OAS’s role as a forum for regular high-level discussions on issues facing the hemisphere is one of its major strengths, says CFR Deputy Director of Studies Shannon K. O’Neil. Several other analysts have praised the IAHRC as a crucial, objective platform for human rights litigation. For instance, the commission played an important role in uncovering rights abuses committed during several of the region’s military dictatorships in the 1970s and 1980s. The OAS “took forceful stands to defend democracy in Haiti, Peru, Guatemala, and Paraguay” in the 1990s, writes Inter-American Dialogue President Michael Shifter.
What are its weaknesses?
Many policymakers from member states have criticized the OAS for institutional shortcomings. Experts say the region’s polarized politics have made it difficult for the OAS to make quick, decisive calls to action.
Moreover, many members are reluctant to empower independent monitoring agencies. In 2016, the IAHRC announced layoffs and suspended hearings due to budget cuts, which Shifter says were largely due to members’ failing to meet their financial responsibilities. “For a number of governments, bolstering a genuinely autonomous body that would enhance scrutiny of their human rights records is hardly a high priority,” he writes.
Election monitoring is also constrained: OAS observers can deploy only to countries that have invited them. Nevertheless, it has become a norm in many member countries to accept OAS monitors, which O’Neil says has been helpful in ensuring the legitimacy of elections. After observers expressed concern about vote counting during Bolivia’s 2019 presidential election, an OAS audit found “clear manipulations” favoring President Evo Morales. The body recommended a new election, but Morales resigned amid widespread protests and under military pressure. Some researchers have since questioned the OAS’s allegations, arguing that there is no statistical evidence of election fraud.
How committed is OAS to democracy?
The OAS has played an important role in promoting democracy since most of the hemisphere returned to civilian rule toward the end of the Cold War. In 1992, the OAS amended its charter to allow the suspension of states whose democratic governments are overthrown by force, and in 2001, members signed the Inter-American Democratic Charter, which declared that American states have a “right to democracy” and an “obligation to promote and defend it.” In 2009, members suspended Honduras following a military coup; the country was readmitted two years later after officials there held elections.
Since then, political pressure from the bloc has heightened significantly amid a humanitarian crisis that has caused an estimated 4.6 million Venezuelans to flee the country. Peru barred Maduro from the 2018 Summit of the Americas, though Venezuela dominated the meeting’s plenary discussion. Sixteen OAS member states rebuked Caracas in a joint statement, but others, particularly Cuba, indicated support [PDF] for Maduro’s government.
Maduro ignored vociferous calls from Almagro and the OAS Permanent Council to postpone Venezuela’s 2018 presidential election until the rule of law is reinstated and elections sanctioned by international observers. In response, the regional bloc tried to initiate suspension proceedings against Venezuela, but the measure lacked sufficient support. However, the group dealt a blow to Maduro in April 2019 by recognizing opposition leader Juan Guaido’s envoy as Venezuela’s representative to the OAS.
What is the organization's history with Cuba?
The only country in the Western Hemisphere that is not a member of the OAS is Cuba, which has long been a wedge between member states. At the urging of the United States, the OAS suspended Cuba in 1962 on the grounds that its self-proclaimed Marxist-Leninist government was “incompatible with the principles and objectives of the inter-American system.”
In 2009, the OAS voted unanimously to lift the suspension on the condition that Cuba submit to a “process of dialogue” on OAS principles. In 2015, U.S. President Barack Obama met with Cuban President Raul Castro on the sidelines of the Summit of the Americas—it was the first time a Cuban leader attended the summit—part of a rapprochement many observers said could warm ties between Washington and much of Latin America.
However, Trump’s partial reversal of the détente introduced by Obama and Castro’s stated lack of interest in rejoining the OAS threw doubt on any such reconciliation. The OAS has remained critical of Cuba, denouncing the installation of Castro’s successor, Miguel Diaz-Canel and condemning the government’s human rights record. In October 2019, Diaz-Canel rebuked the “troop of mediocre and duplicitous politicians pulled together in the OAS.”
What is the Trump administration's relationship with the OAS?
In an April 2017 statement, Trump called the OAS an “enduring organization for the promotion of democracy, security, human rights, and economic development.” His administration led OAS efforts to suspend Maduro’s Venezuelan delegation and recognize Guaido’s envoy. However, the U.S. ambassador to the OAS received criticism in June 2019 from groups including Haiti’s opposition for attempting to intervene in the country’s volatile political situation. Some observers also allege that U.S. policymakers pressured the OAS to interfere in the Bolivian election and topple Morales, who has called the United States a “great conspirator” in his fall from power.
OAS officials have feared that deep budget cuts at the U.S. State Department proposed by Trump could affect funding for the bloc. In 2018, his administration requested $8.75 million less than [PDF] the United States’ required contribution to the OAS budget for that year, though it ultimately did meet its $50.75 million quota [PDF]. And in March 2019, Secretary of State Mike Pompeo announced that the Trump administration would cut funding to the OAS due to the organization’s support for legalizing abortion.
Many Latin American leaders have expressed concerns over Trump’s stances on immigration, trade, and Cuba. Trump’s policies toward Latin America risk alienating an increasingly pro-trade, U.S.-friendly region, wrote Javier Corrales, a professor of political science at Amherst College. U.S. protectionism, including tariffs on Chinese imports and threats to withdraw from the North American Free Trade Agreement (NAFTA), could encourage Latin American countries to go the other way and be more open to trade with one another, analysts say.
Are there regional alternatives to the OAS?
A handful of other regional groupings have emerged over the last two decades with different goals. Some sought to counter Washington’s perceived influence over the OAS, while others aimed to streamline decision-making.
CELAC: The Community of Latin American and Caribbean States is an organization that excludes the United States and Canada and was widely seen as a potential alternative to the OAS when it was founded in 2010. Its achievements have included securing a 2015 pledge from Chinese President Xi Jinping to invest $500 billion in the region. In January 2020, Brazil announced it would withdraw from CELAC, arguing that the group is controlled by authoritarian regimes in Cuba, Nicaragua, and Venezuela.
UNASUR: The Union of South American Nations was founded in 2008 and regarded by many observers as a means for Brazil to assert its power in the region. The organization mediated a diplomatic crisis between Ecuador and Colombia in 2008, and participated in Vatican-led talks between Venezuela’s government and opposition leaders in 2016. However, it fell apart after more than half its member states suspended their involvement in 2018.
Prosur: The Forum for the Progress of South America was formed in March 2019 by UNASUR’s defecting countries—Argentina, Brazil, Chile, Colombia, Ecuador, Paraguay, and Peru—plus Guyana. Venezuela was the only South American state not invited to join. Conveners envision it as a UNASUR substitute focused on socioeconomic cooperation, though analysts have questioned the bloc’s usefulness and staying power.
ALBA: The Bolivarian Alliance for the Peoples of Our America was founded in 2004 by Venezuelan President Hugo Chavez and Cuban President Fidel Castro. It comprises ten governments from the region (Ecuador withdrew in 2018) and seeks economic and political integration based on leftist ideals. Experts say its influence has diminished amid Venezuela’s economic and political disintegration.
Rocio Cara Labrador and Amelia Cheatham contributed to this report.