In effect, the new policy would expand current channels for travel to Cuba, rather than create new ones. Academic, religious and cultural groups are now allowed to travel under very tight rules. For example, students wanting to study in Cuba are required to stay at least 10 weeks. And only accredited universities can apply for academic visas.

Under the new policy, such restrictions would be eased, officials said. And academic institutions, including research and advocacy groups and museums, would be able to seek licenses for as long as two years.

In addition, the administration is also planning to allow flights to Cuba from more cities than the three  Miami, New York and Los Angeles  currently permitted. And there are proposals, the officials said, to allow all Americans to send remittances or charitable donations to churches, schools and human rights groups in Cuba.

Some analysts said the measures were partly a response to pressure from an unlikely alliance of liberal political groups and conservative business associations  led by Senator John Kerry, head of the Senate Foreign Relations Committee  who have been pushing Congress to lift all restrictions on travel to Cuba.

Others described it as a nod to President Castro’s stunning decision last month to begin releasing dozens of political prisoners.

“It’s a way of fostering greater opening and exchange without a bruising battle with a much-needed political ally in an election year,” said Christopher Sabatini, senior policy director at the Council of the Americas. “But it can still be legitimately couched as a way of supporting democracy and human rights by allowing independent exchange and thought.”

As with everything concerning Cuba, the new policy seems fraught with complications. President Obama, who came to office promising to open new channels of engagement with Cuba, has so far had limited those new openings to Cuban-Americans, partly because of political concerns, and also because his administration’s attention had been focused on more pressing foreign policy matters, including two wars.