The Current Restructuring of Cuba's Sugar Agroindustry
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The Current Restructuring of Cuba's Sugar Agroindustry

   

The Current Restructuring of Cuba's Sugar Agroindustry1

José Alvarez2

Introduction

After remaining a leading world sugar producer for most of the twentieth century, Cuba's sugar agroindustry is currently undergoing a radical transformation. In spite of the interest that the process has generated outside of Cuba, very few details about its scope and impacts are known. The objective of this fact sheet is to partially fill that gap.

The Restructuring Process

The Underlying Reasons

On April 10, 2002, the Cuban government announced that about half of Cuba's 156 sugar mills would be closed permanently as part of a restructuring process. Such a radical decision had to come from the very top of the Cuban leadership. In a 2003 speech, Cuba's Vice-President Lage stated that: "as we advance on this task, we understand better Fidel's vision when he decided to close 70 mills and start this profound and broad transformation" (Varela Pérez, 2003). Reasons for such a drastic measure included depressed prices and a negative outlook for the world sugar market, and Cuba's sugar agroindustry's existing excess capacity, well above current and future needs.

The restructuring (or re-dimensioning, or reconversion, or rationalization as it is also called) has three general objectives:

  1. to achieve efficiency and competitiveness in sugarcane and sugar production.

  2. to increase food production through agricultural and industrial diversification.

  3. to develop a sustainable agriculture, supported by knowledge and human capital.

General Overview

The restructuring program was named the "Alvaro Reynoso Task" in honor of a famous Cuban scientist of the mid-1800s whose sugarcane recommendations are still being followed in many areas of the world. According to the Cuban Minister of Sugar (Rosales del Toro, 2002, pp. 4-5), the implementation would encompass the following tasks:

Deactivating the sugar mills displaced 213,000 workers, who have either retired or moved into other productive tasks--23,540 workers (58%) remain in the ministry's enterprises; 42,600 workers (20%) are full-time students; 21,300 workers (10%) have moved into non-sugar agricultural production; 17,040 workers (8%) have retired or gone into some other type of business; and 8,520 workers (4%) are working full-time dismantling the inactive sugar mills (Peters, 2003, p. 9). The surplus workers who opted for full-time study continue to receive their paychecks during the retraining process.

The Cuban Minister of Sugar has stated publicly that the remaining sugar mills will be open to foreign investment (Frank, 2002a). The first mill to benefit from foreign financing, according to the Associated Press (2002), was the "Paraguay" in the oriental province of Guantánamo. Peters (2003, p. 11) reported that 10 joint ventures have been formed with foreign investors (where the foreign investor owns part of the business and shares profits), and 15 cooperative production agreements have been reached (where the foreign partner contracts to assist production and earns a share of revenues, without ownership). The joint ventures include alcohol production (Spain), chemicals (Mexico), and specialty papers (Italy).

Scope and Regional Impact

The numbers mentioned above, however, do not tell the whole story. A few calculations from the official Cuban data shown in Tables 1 and 2 help to better understand the magnitude of the current transformation and its regional impacts. For example, by reducing the number of raw mills from 156 to 85 (a 45.5% decrease), total daily grinding capacity declined from 647,200 to 404,700 metric tons (a 37.5% decrease), whereas average milling capacity went from 4,149 to 4,761 metric tons per mill (a 14.7% increase).

With minor exceptions (due perhaps to the location of mills within important sugarcane production areas), the goal of eliminating small, inefficient factories appears to have been fulfilled. Of the 66 mills that are being dismantled or converted into museums, the majority had less than 3,000 metric tons grinding capacity.

Although all the provinces have been impacted to some degree, a few have seen their sugar industries shrink considerably. Examples include Matanzas, La Habana, Villa Clara, and Cienfuegos, which have seen their number of mills decreasing to 38%, 40%, 46%, and 58%, respectively, of what they were before the restructuring process.

While Cuba lists 400,000 workers in its sugar agroindustry, the methodology used to develop that figure has never been explained. Regardless of the exact number of people working in Cuba's largest industry, the impact is by no means small. Shortly after the announcement was officially made, Cuba's President Castro himself had to address the nation to calm the worries of those who were about to lose their jobs (Frank, 2002b). However, the nation's fear was well founded since Cuba's raw sugar mills are located in 100 of its 169 municipalities. This means that almost 100,000 displaced workers need to be retrained. While displaced workers receiving retraining will probably not be impacted too much, workers engaged in indirect activities will feel the repercussions of this process for a long time.

Final Thoughts

The current restructuring process has just begun. It is obvious that an effort of this magnitude will require periodic adjustments, which has created a debate over other alternatives. For example, Almazán del Olmo (2002, p. 98) states that Cuba's sugar agroindustry should embody:

Some world sugar specialists have reacted with some degree of skepticism concerning a successful outcome (Licht, 2002). Nobody, however, questions the need for restructuring Cuba's sugar agroindustry (Alvarez and Peña Castellanos, 2001, pp. 91-106). While the current plan being implemented appears to be appropriate, questions remain unanswered or have not been adequately addressed. For example,

The final concern involves the potential neglect of the restructuring process after the big push of the first years of implementation. It has happened with other gigantic plans and projects undertaken by the Cuban government (Alvarez, 2004). Even if the process is completed, it is doubtful that the Cuban sugar agroindustry will be able to switch back to higher levels of sugar output (as is done in Brazil) when world prices call for such a move.

The current restructuring has ended decades of internal debate concerning the role of sugar in the Cuban economy. However, despite depressed cyclical world sugar prices (which are not a new phenomenon anyway), the law of comparative advantage dictates that Cuba should remain a top world sugar producer. Lack of incentives has been identified as a key factor hindering the achievement of higher levels of productivity and economic efficiency. Perhaps that should be a priority area if Cuba's sugar agroindustry is to regain its former competitiveness.

References

Almazán del Olmo, Oscar. 2002. Viabilidad del Proyecto Azucarero Cubano (Feasibility of Cuba's sugar project). Revista Bimestre Cubana (Epoca III) XCII (17, July-December): 92-105.

Alvarez, José. 2004. Cuba's Agricultural Sector. Gainesville, FL: University Press of Florida. In Press.

Alvarez, José and Lázaro Peña Castellanos. 2001. Cuba's Sugar Industry. Gainesville, FL: University Press of Florida.

Associated Press. 2002. Reconvierten ingenio azucarero cubano con financiamiento externo (Cuban sugar mill is restructured with foreign financing). Havana, Cuba, November 8.

Frank, Marc. 2002a. Cuba will downsize sugar industry by 50 pct - minister. Transmission and Distribution World, June 18. http://tdworld.com/ar/agriculture_cuba_downsize_sugar/index.htm .

Frank, Marc. 2002b. Castro moves to calm Cuban sugar industry's worries. Forbes, October 22. http://www.forbes.com/business/newswire/2002/10/22/rtr761254.html .

Licht, F.O. 2002. Cuba seeks to revamp its sugar industry. International Sugar and Sweetener Report 134 (20): 309, 311-314.

MINAZ. 1999. Diversificación - Bases del Proceso de Perfeccionamiento del Complejo Agroindustrial Azucarero (Diversification - Basis of the process of improvement of the agroindustrial complex). La Habana, Cuba: Ministry of Sugar.

MINAZ. 2003. Informe Resumen de los Resultados Alcanzados por las UBPC Cañeras en el Período 1993-2003 (Summary report of the sugarcane UBPCs results in the 1993-2003 period). La Habana, Cuba: Ministry of Sugar and National Syndicate of Sugar Workers, October 31.

Peters, Philip. 2003. Cutting Losses: Cuba Downsizes its Sugar Industry. Washington, DC: Lexington Institute, December. http://www.lexingtoninstitute.org/cuba/SugarpaperFinalPDF.pdf .

Rosales del Toro, Ulises.2002. Intervención del Ministro del Azúcar a los Embajadores Extranjeros en Cuba Sobre la Restructuración del MINAZ (Oral presentation of the Minister of Sugar to foreign ambassadors in Cuba about MINAZ's restructuring). La Habana, December 5. Mimeo Report.

Varela Pérez, Juan. 2003. Restructuración Azucarera: El Compromiso de Dar Uso a las Tierras que Pasan a Otros Cultivos (Sugar restructuring: The commitment to use the lands transferred to other crops). Granma, October 25, 2003. http://www.granma.cu .

Tables

Table 1. Cuban mills after the 2002 restructuring process.

No.


Current Name


Former Name


Municipality


Grinding Capacity

(mt/day)a

Fate


Pinar del Río


102
Harlem
Bahía Honda
Bahía Honda

2,300

Sugar


106
Manuel Sanguily
Niágara


La Palma

2,000

Sugar/Molasses
107
Pablo de la Torriente Brau
Orozco
Bahía Honda

3,000

Dismantled


108
José Marti
San Cristóbal
San Cristóbal


3,000

Dismantledb


110
Treinta de Noviembre
New (1980)


San Cristóbal

6,000

Sugar
La Habana


101
Abraham Lincoln
Andorra
Artemisa

4,000

Sugar
103
Eduardo Garcia Lavandero
El Pilar
Artemisa

4,000

Dismantled
105
Angusto César Sandino
Mercedita
Mariel

2,000

Dismantled
109
Orlando Nodarse
San Ramon
Mariel

3,000

Dismantled
201
Amistad con los Pueblos
Amistad
Güines

3,000

Dismantled
202
Cdte. Manuel Fajardo
Fajardo
Quivicán

3,000

Sugar/Molasses
203
Héctor Molina Riaño


Gómez Mena
San Nicolás

7,000

Sugar
204
Habana Libre
Habana
Caimito

2,000

Sugar
205
Camilo Cienfuegos
Hershey
Santa Cruz del Norte

6,000

Dismantled
206
Manuel Isla
Josefita
Nueva Paz

2,000

Dismantled
207
Gregorio Arleé Mañalich
Mercedita
Melena del Sur

4,000

Sugar
208
Pablo Noriega
Occidente
Quivicán

1,200

Dismantled


210
Osvaldo Sánchez
Prividencia
Güines

3,000

Dismantled
211
Rubén Martínez Villena


Rosario
Madruga

3,000

Dismantled
212
Boris Luis de Santa Coloma
San Antonio
Madruga

3,000

Sugar
Ciudad de la Habana


213
Manuel Martínez Prieto


Toledo
Marianao

5,000

Refinery/Museum
Matanzas


301
México
Alava


Colón


6,000

Sugar
302
Reynold García


Araujo
Calimete

3,000

Dismantled
303
Australia
Australia
Jagüey Grande

3,000

Dismantled
304
Granma
Carolina
Jovellanos

3,000

Dismantled
305
Puerto Rico Libre
Conchita
Unión de Reyes

5,000

Dismantled
306
Cuba Libre
Cuba
Pedro Betancourt

6,000

Sugar/Molasses
307
Jaime López
Dolores
Jovellanos

2,000

Dismantled
308
Humberto Alvarez
Dos Rosas
Cárdenas

2,000

Dismantled
310
España Republicana
España
Perico

8,000

Sugar
311
Esteban Hernández
Guipúzcoa
Martí


3,000

Sugar/Molasses
312
Fructuoso Rodríguez


Limones
Limonar

3,000

Dismantled
313
Seis de Agosto
Mercedes
Calimete

6,000

Dismantled
314
Jesús Rabí


Porfuerza
Calimete

3,000

Sugar
315
José Smith Comas
Progreso
Cárdenas

3,000

Museum
318
Victoria de Yaguajay
Santa Amalia
Jovellanos

2,600

Dismantled
319
René Fraga
Santa Rita
Colón

2,600

Sugar
320
Juan Avila
Santo Domingo
Unión de Reyes

2,600

Sugar
321
Julio Reyes Cairo
Soledad
Jovellanos

2,600

Dismantled
322
Sergio González
Tinguaro
Colón

4,800

Dismantled
323
Horacio Rodríguez


Triunfo
Limonar

2,000

Dismantled
324
Mario Muñoz Monroyc


New (1986)
Los Arabos

5,400

Sugar
Villa Clara


401
Heriberto Duquesne
Adela
Remedios

2,500

Sugar/Molasses
405
Luis Arcos Bergnes
Carmita
Camajuaní


2,000

Dismantled
407
Abel Santamaría


Constancia "E"
Encrucijada

2,600

Sugar
408
Mariana Grajales
Corazón de Jesús
Cifuentes

2,000

Dismantled
411
José Maria Pérez
Fe
Camajuaní


4,000

Sugar


412
Juan Pedro Carbó Serviá
Fidencia
Placetas

2,300

Reserve
415
Braulio Coroneaux


Macagua
Cifuentes

2,000

Dismantled
417
Veintiséis de Julio
María Antonia


Santo Domingo

2,000

Dismantled
420
Emilio Córdova
Nazábal
Encrucijada

2,700

Dismantled
423
Osvaldo Herrera
Pastora
Ranchuelo

2,700

Dismantled
426
Perucho Figueredo
Purio
Encrucijada

4,000

Sugar/Molasses
427
Quintín Banderas


Ramona


Corralillo


4,300

Sugar
428
Marcelo Salado
Reforma
Caibarién

2,600

Museum
429
José Ramón Riquelme
Resolución
Quemado de Güines

2,000

Dismantled
430
Antonio Finalet
Resulta
Sagua la Grande


3,200

Dismantled
432
Chiquitico Fabregat
San Agustin "R"
Remedios

2,500

Sugar
434
Panchito Gómez Toro
San Isidro
Quemado de Güines

3,700

Sugar
435
Hermanos Ameijeiras
San José
Placetas

2,800

Dismantled
437
Carlos Caraballo
Santa Catalina
Ranchuelo

2,600

Dismantled
439
El Vaquerito
Santa Lutgarda
Cifuentes

2,300

Sugar
440
Efraín Alfonso


Santa María


Ranchuelo

3,000

Sugar
441
Diez de Octubre
Santa Rosa
Ranchuelo

2,600

Sugar
442
Héctor Rodríguez


Santa Teresa
Sagua la Grande

4,600

Sugar
446
Carlos Baliño
Ulacia
Santo Domingo

2,200

Sugar
447
Unidad Proletaria
Unidad
Cifuentes

2,000

Dismantled
449
George Washington
Washington
Santo Domingo

4,000

Sugar
450
Benito Juárez


Zaza
Placetas

2,500

Dismantled
460
Batalla de Santa Clara
New (1986)
Camajuaní


6,000

Reserve
Cienfuegos


403
Mal Tiempo
Andreíta


Cruces

3,000

Sugar
404
Ciudad Caracas
Caracas
Lajas

4,000

Sugar
406
Guillermo Moncada
Constancia "A"
Abreus

3,700

Sugar
409
Antonio Sánchez
Covadonga
Aguada de Pasajeros


3,600

Sugar
413
Espartaco
Hormiguero
Palmira

3,800

Dismantled
416
Catorce de Julio
Manuelita
Rodas

3,000

Sugar
424
Primero de Mayo
Perseverancia
Aguada de Pasajeros

3,600

Dismantled
425
Elpidio Gómez
Portugalete
Palmira

2,600

Sugar
431
Ramón Balboa
San Agustín "L"


Lajas

3,800

Dismantled
433
Martha Abreu
San Francisco
Cruces

2,000

Reserve
443
Pepito Tey
Soledad
Cienfuegos

2,400

Dismantled
456
Cinco de Septiembre
New (1981)
Rodas


7,000

Sugar
Sancti Spíritus


414
Remberto Abad Alemán
La Vega
Cabaiguán

2,000

Dismantled
418
Obdulio Morales
Narcisa
Yaguajay

2,200

Sugar/Molasses
419
Siete de Noviembre
Natividad
La Sierpe

2,000

Dismantled
421
Aracelio Iglesias
Nela
Yaguajay

2,000

Dismantled
438
Ramón Ponciano


Santa Isabel
Fomento

2,500

Sugar
444
FNTA
Trinidad
Trinidad

4,000

Sugar/Molasses
445
Melanio Hernández
Tuinicú
Taguasco

4,600

Sugar
448
Simón Bolívar


Victoria
Yaguajay

2,200

Dismantled
512
Uruguay
Jatibonico
Jatibonico


13,800


Sugar
Ciego de Avila


501
Enrique Varona González
Adelaida
Chambas

5,500

Sugar
503
Orlando González
Algodones
Majagua

5,200

Sugar
504
Ecuador
Baraguá
Baraguá
10,400


Sugar
506
Bolivia
Cunagua
Bolivia

5,000

Dismantled
515
Ciro Redondo
Morón
Ciro Redondo


11,600


Sugar
517
Patria o Muerte
Patria
Morón

2,500

Museum
518
Máximo Gómez
Punta Alegre
Chambas

6,000

Dismantled
522
Venezuela
Stewart
Venezula
11,600


Sugar
524
Primero de Enero
Violeta
Primero de Enero

8,700

Sugar
Camagüey


502
Ignacio Agramonte
Agramonte
Florida

4,600

Sugar
505
Carlos M. de Céspedes
Céspedes
Carlos M. de Céspedes

4,500

Sugar
508
República Dominicana
Estrella
Carlos M. de Céspedes

5,000

Dismantled
509
Argentina
Florida
Florida

3,300

Sugar
511
Brasil
Jaronú
Esmeralda
10,600


Sugar/Molasses
513
Sierra de Cubitas
Lugareño
Minas

6,300

Sugar
514
Haití


Macareño
Sta. Cruz del Sur

5,000

Dismantled
516
Alfredo Alvarez Mola
Najasa
Sibanicú

2,100

Dismantled
519
Cándido González
Santa Marta
Sta. Cruz del Sur

6,000

Sugar
520
Noel Fernández
Senado
Minas

5,000

Reserve
521
Siboney
Siboney
Sibanicú

2,000

Sugar/Molasses
523
Panamá
Vertientes
Vertientes
10,600


Sugar
525
Jesús Suárez Gayol
New (1983)
Sta. Cruz del Sur

7,000

Reserve
530
Batalla de las Guásimas
New (1980)
Vertientes

7,000

Sugar
Las Tunas


507
Colombia
Elia
Colombia

4,600

Sugar
510
Amancio Rodríguez


Francisco
Amancio

7,400

Sugar/Molasses
610
Jesús Menéndez
Chaparra
Jesús Menéndez

9,200

Sugar
611
Antonio Guiteras
Delicias
Puerto Padre
12,200


Sugar
618
Perú
Jobabo
Jobabo
10,300


Dismantled
622
Argelia Libre
Manatí


Manatí


9,200

Dismantled
642
Majibacoa
New (1987)
Majibacoa

4,800

Sugar
Holguín


602
Loynaz Hechevarría


Alto Cedro
Cueto


3,800

Sugar
604
López Peña
Báguanos
Báguanos

4,000

Sugar
607
Nicaragua
Boston
Banes

8,000

Sugar/Molasses
608
Cristino Naranjo
Cacocum
Cacocum

6,400

Sugar
621
Antonio Maceo
Maceo
Cacocum

5,200

Sugar
626
Guatemala
Preston
Mayarí


13,000


Dismantled


631
Urbano Noris
San Germán
Urbano Noris

4,000

Sugar
635
Rafael Freyre
Santa Lucía


Rafael Freyre

3,600

Museum
639
Fernando de Dios
Tacajó
Báguanos

3,600

Sugar
640
Frank País


Tánamo
Frank País


3,500

Dismantled
Granma


609
Luis Enrique Carracedo
Cape Cruz
Pilón


2,000

Dismantled
612
Francisco Castro Ceruto
Dos Amigos
Campechuela

2,100

Dismantled
615
Bartolomé Masó
Estrada Palma
Bartolomé Masó

3,400

Sugar
616
Juan Manuel Márquez
Isabel "B"


Media Luna

6,800

Sugar
620
Arquímides Colina


Mabay
Bayamo

2,400

Sugar
624
Roberto Ramírez Delgado


Niquero


Niquero

3,500

Sugar
627
José Nemesio Figueredo
Río Cauto


Río Cauto


4,700

Dismantled
629
La Demajagua
Salvador
Manzanillo

2,300

Dismantled
636
Enidio Díaz Machado


Santa Regina
Campechuela

2,600

Sugar
637
Ranulfo Leyva
Sofía


Yara

3,000

Dismantled
650
Grito de Yara
New (1982)
Río Cauto


6,600

Sugar
Santiago de Cuba


601
Salvador Rosales
Algodonal
Songo-La Maya


1,700

Sugar
603
América Libre
América
Contramaestre

2,800

Sugar
605
Los Reynaldos
Baltony
Songo-La Maya

4,600

Sugar/Molasses
606
Paquito Rosales
Borjita
San Luis

2,700

Sugar
623
Julio Antonio Mella
Miranda
Mella

7,000

Sugar
625
Dos Ríos


Palma
Palma Soriano

4,600

Sugar
633
Chile
Santa Ana
San Luis

2,600

Sugar
641
Rafael Reyes
Unión
San Luis

1,800

Dismantled
Guantánamo


613
Costa Rica
Ermita
El Salvador

2,000

Dismantled
614
Argeo Martínez


Esperanza
Guantánamo

2,400

Sugar
617
Honduras
Isabel "G"
Guantánamo

2,000

Dismantled
619
Paraguay
Las Cañas
Guantánamo

2,000

Dismantled
630
Manuel Tames
San Antonio
Manuel Tames

1,200

Sugar
638
El Salvador
Soledad
El Salvador

2,500

Sugar/Molasses
a From Alvarez and Peña Castellanos (2001, pp. 123-127).

b The refinery is being annexed to the Treinta de Noviembre Mill.

c A mill with same name (formerly, Zorrilla) was dismantled in 1962 in same municipality and province.

Source: MINAZ (Cuba's Sugar Ministry).


Table 2. Active and deactived sugar mills, 2003.

Province


Active Mills

Deactivated Mills

Total Mills


Sugar

Sugar/

Molasses

Dismantled

Museum

Reserve

Active and Deactived


#

Capacitya

#

Cap.

#

Cap.

#

Cap.

#

Cap.

#

Capacity

Pinar del Río


2

8,300

1

2,000

2

6,000

0

N/Ab

0

N/A

5

16,300

La Habana

5

20,000

1

3,000

9

27,200

0

N/A

0

N/A

15

50,200

C. Habana

0

N/A

0

N/A

0

N/A

1c

5,000

0

N/A

1

5,000

Matanzas

6

27,600

2

9,000

12

39,000

1

3,000

0

N/A

21

78,600

Villa Clara

11

35,800

2

6,500

12

28,500

1

2,600

2

8,300

28

81,700

Cienfuegos

7

26,900

0

N/A

4

13,600

0

N/A

1

2,000

12

42,500

S. Spíritus


3

20,900

2

6,200

4

8,200

0

N/A

0

N/A

9

35,300

C. de Avila

6

53,000

0

N/A

2

11,000

1

2,500

0

N/A

9

66,500

Camagüey

7

42,300

2

12,600

3

12,100

0

N/A

2

12,000

14

79,000

Las Tunas


4

30,800

1

7,400

2

19,500

0

N/A

0

N/A

7

57,700

Holguín


6

27,000

1

8,000

2

16,500

1

3,600

0

N/A

10

55,100

Granma

6

25,300

0

N/A

5

14,100

0

N/A

0

N/A

11

39,400

S. de Cuba

6

21,400

1

4,600

1

1,800

0

N/A

0

N/A

8

27,800

Guantánamo

2

3,600

1

2,500

3

6,000

0

N/A

0

N/A

6

12,100

Total


71

342,900

14

61,800

61

203,500

5

16,700

5

22,300

156

647,200

a Daily grinding capacity in metric tons per day.

b N/A = Not Applicable.

c Refinery was incorporated to the 30 de Noviembre Mill.

Source: Calculated from Table 1.



Footnotes

1. This is EDIS document FE472, a publication of the Department of Food and Resource Economics, Florida Cooperative Extension Service, UF/IFAS, University of Florida, Gainesville, FL. Published January 2004. Please visit the EDIS website at http://edis.ifas.ufl.edu.

2. José Alvarez, professor, Department of Food and Resource Economics, Everglades Research and Education Center, Belle Glade, FL, Florida Cooperative Extension Service, UF/IFAS, University of Florida, Gainesville, FL.


The Institute of Food and Agricultural Sciences (IFAS) is an Equal Opportunity Institution authorized to provide research, educational information and other services only to individuals and institutions that function with non-discrimination with respect to race, creed, color, religion, age, disability, sex, sexual orientation, marital status, national origin, political opinions or affiliations. For more information on obtaining other extension publications, contact your county Cooperative Extension service.

U.S. Department of Agriculture, Cooperative Extension Service, University of Florida, IFAS, Florida A. & M. University Cooperative Extension Program, and Boards of County Commissioners Cooperating. Larry Arrington, Dean.



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