Updated May 7, 2020
U.S.-European Relations in the 116th Congress
A Relationship in Flux?
U.S. leadership of NATO and cooperation with the EU has
Since the end of the Second World War, successive U.S.
helped to foster democratic and prosperous European allies
Administrations and many Members of Congress have
that, in turn, have bolstered U.S. foreign and security
supported a close U.S. partnership with Europe. Often
policies, the multilateral trading system, and the credibility
termed the transatlantic relationship, the U.S.-European
of U.S. global leadership. The United States and Europe
partnership encompasses NATO, the European Union (EU),
have worked together on many common challenges—from
and extensive bilateral political and economic ties. Over the
promoting stability in the Balkans and Afghanistan to
past 70 years, political tensions, trade disputes, and changes
addressing Russian aggression in Ukraine to countering
in the security landscape have tested U.S.-European
terrorism and other transnational threats. U.S.-EU
relations. Despite periodic difficulties, U.S. and European
cooperation has been a driving force in liberalizing world
policymakers have valued the transatlantic partnership as
trade. Experts point out that the well-honed habits of U.S.-
serving their respective geostrategic and economic interests.
European political, military, and intelligence cooperation
are unique and cannot be easily replicated with other
President Trump and some Administration officials have
international actors. U.S. engagement in Europe also helps
questioned the tenets of the post–World War II transatlantic
limit Russian, Chinese, or other possible malign influences.
security and economic architecture to an unprecedented
extent. President Trump’s criticisms of NATO, the EU, and
At times, U.S. officials and analysts have expressed
key European countries have prompted significant concerns
frustration with certain aspects of the transatlantic
in Europe. The Administration contends that it is committed
relationship. Previous U.S. Administrations and many
to NATO and supports close U.S.-European ties, but some
Members of Congress have criticized what they view as
Europeans question whether the United States will remain a
insufficient European burden sharing in NATO, and some
reliable, credible partner. Policy divergences exist on a
have questioned the costs of the U.S. military presence in
wide range of regional and global issues and managing the
Europe. U.S. policymakers have long complained about EU
spread of Coronavirus Disease 2019 (COVID-19) has
regulatory barriers to trade and that the EU lacks a single
further strained U.S.-European relations. The second
voice on many foreign policy issues. Some U.S. analysts
session of the 116th Congress may wish to consider the
have argued that a close partnership with Europe at times
implications of Trump Administration policies for U.S.
requires compromise and may slow certain U.S. decisions.
interests in Europe and U.S.-European cooperation.
The Trump Administration and Current Tensions
Transatlantic Relations and U.S. Interests
The Trump Administration’s 2017 National Security
U.S. policymakers have long regarded both NATO and the
Strategy states that “the United States is safer when Europe
EU as crucial to maintaining peace and stability in Europe
is prosperous and stable, and can help defend our shared
and stymieing big-power competition that cost over
interests and ideals.” The Administration asserts that the
500,000 American lives in two world wars. The United
United States supports NATO and its Article 5 mutual
States spearheaded NATO’s creation in 1949 and
defense commitment but argues that NATO will be stronger
encouraged the European integration project from its
when all members “pay their fair share.” Critics contend
inception in the 1950s. During the Cold War, NATO and
that President Trump’s perceived transactional view of
the European project were considered essential to deterring
NATO and his almost singular focus on European defense
the Soviet threat. With strong U.S. support, NATO and the
spending as the measure of NATO’s worth are damaging
EU have enlarged since the 1990s, extending security and
alliance cohesion. Some believe that President Trump could
prosperity across the European continent.
seek to withdraw the United States from NATO.
The U.S. and European economies are deeply intertwined.
Given long-standing U.S. support for the EU, the Trump
In 2019, the EU accounted for about one-fifth of total U.S.
Administration’s seeming hostility has surprised the bloc.
trade in goods and services. The United States and the EU
President Trump voiced support for the United Kingdom’s
are each other’s largest source and destination for foreign
(UK) decision to leave the EU (“Brexit”). He contends that
direct investment. According to data from the U.S. Bureau
the EU engages in unfair trade practices and is especially
of Economic Analysis, the transatlantic economy (including
critical of the U.S. goods trade deficit with the EU ($179
the EU and non-EU countries such as the UK, Norway, and
billion in 2019). EU officials are concerned by what they
Switzerland) typically generates more than $5 trillion per
view as protectionist U.S. trade policies, including the use
year in foreign affiliate sales and directly employs over 9
of tariffs, and some question the extent to which the United
million workers on both sides of the Atlantic. (See also
States will remain a partner in setting global trade rules.
CRS In Focus IF10930, U.S.-EU Trade and Investment
Ties: Magnitude and Scope, by Shayerah Ilias Akhtar.)
https://crsreports.congress.gov
U.S.-European Relations in the 116th Congress
U.S.-European divisions have emerged on numerous other
Report R45745, Transatlantic Relations: U.S. Interests and
issues, from aspects of relations with Russia and China, to
Key Issues, coordinated by Kristin Archick.)
the Middle East peace process, arms control, and the U.S.
decisions to withdraw from the Paris Agreement on climate
Issues for Congress
change and the 2015 multilateral nuclear deal with Iran. EU
Many Members of Congress appear to favor a strong
policymakers viewed the nuclear deal with Iran as further
transatlantic partnership, despite some concerns about
imperiled by the January 2020 U.S. drone strike that killed
European positions on certain foreign policy or trade issues.
a powerful Iranian military commander. Although the UK,
Broad bipartisan support exists in Congress for NATO.
France, and Germany subsequently accused Iran of
Many Members view U.S.-EU economic and trade ties as
violating the nuclear accord, European officials resented
mutually beneficial. Potential issues for deliberation include
President Trump’s reported efforts to coerce this decision
NATO. The 116th Congress has passed legislation
by threatening to impose tariffs on European automobiles.
reaffirming U.S. support for NATO and limiting the
Many European leaders also opposed President Trump’s
President’s ability to unilaterally withdraw from the
decision to halt U.S. funding to the World Health
alliance. In light of NATO’s 70th anniversary in 2019,
Organization pending a review of its role in allegedly
Congressional hearings examined the future of the
mismanaging the response to the COVID-19 pandemic.
alliance, including NATO’s costs and benefits for the
European officials voice increasing concerns about
United States. Congress also may wish to assess NATO
perceived breakdowns in consultations with the United
efforts to counter terrorism and address emerging
States. European governments appeared blindsided by
security challenges, including cyber and hybrid threats.
President Trump’s decision in October 2019 to withdraw
U.S.-EU economic relations. Congress may review
U.S. forces fighting the Islamic State terrorist group in
progress on a U.S.-EU trade liberalization agreement. In
Syria. Many European countries have participated in the
2018, the Administration notified Congress of the
U.S.-led effort to defeat the Islamic State. Some European
negotiations under Trade Promotion Authority. U.S.-EU
officials contend that the U.S. decision paved the way for
talks have been at an impasse amid discord on their
Turkey to launch a military operation in Syria against allied
scope, especially with respect to agriculture, but
Kurdish forces fighting the Islamic State. The EU also
criticized the Trump Administration’s lack of coordination
discussions are continuing.
in announcing a travel ban from most EU countries in
Future of the EU. The EU is contending with numerous
March 2020 to help combat the spread of COVID-19.
challenges, including its future relationship with the UK,
“euroskeptic” political parties, democratic backsliding
Administration supporters maintain that President Trump’s
in some EU countries, migratory pressures, and
forceful approach is resulting in greater European efforts to
terrorism. Managing COVID-19’s economic
spend more on defense and to address inequities in U.S.-EU
consequences and addressing climate change are also
economic relations. Some have sought to downplay
top EU priorities. Congress may wish to consider
concerns about the transatlantic partnership’s demise. The
whether and how such issues could affect the EU’s
Trump Administration has endorsed new NATO initiatives
future development and U.S.-EU cooperation.
to deter Russia, increased the U.S. military footprint in
Europe, and sought to de-escalate trade tensions with the
Brexit. The UK exited the EU on January 31, 2020.
EU. U.S. officials have invited European allies and friends
Congress may wish to review Brexit’s implications for
to work with the United States to confront challenges posed
U.S.-UK and U.S.-EU relations, for NATO, and for the
by Russia, China, and Iran (among others).
Northern Ireland peace process. Some in Congress
support a future U.S.-UK free trade agreement; U.S.-UK
Future Prospects
negotiations began in May 2020.
Many U.S. supporters of close U.S.-European ties express
Russia. Congress has consistently condemned Russian
concern that President Trump’s approach is endangering
aggression, including in Ukraine, and Russian influence
decades of cooperation that have advanced U.S. interests.
operations in Europe and the United States. The 116th
To many in Europe, U.S. policy trends appear to jeopardize
Congress has enacted sanctions aimed at curbing
both the transatlantic partnership and the broader U.S.-led
Russian energy export pipelines to Europe. Members
international order. Some argue that Europe must be better
also have considered additional sanctions legislation to
prepared to address future challenges on its own. The EU
address Russian election interference, arms sales, and
has put new emphasis on enhancing defense cooperation
other malign activities. European vulnerabilities to
and concluding trade agreements with other countries and
hostile Russian measures and the degree to which
regions, including Canada, Japan, and Latin America. The
Russia could benefit from transatlantic divisions may be
EU is at the forefront of international efforts to develop
issues for continued congressional oversight.
COVID-19 treatments and vaccines, and aims to be a global
leader on issues such as data protection and climate change.
China. Many Members of Congress have expressed
concern about China’s growing strategic interest and
Other experts contend that the transatlantic partnership will
financial investments in Europe, especially with respect
endure. Europe remains largely dependent on the U.S.
to fifth generation (5G) network security and other
security guarantee, and the magnitude of U.S.-EU trade and
critical infrastructure. Congress may wish to examine
investment ties will continue to bind together the two sides
further the implications of Chinese activities for
of the Atlantic. Some observers note that European allies
transatlantic security and economic relations.
and partners in NATO and the EU continue to work with
the Administration on common interests. (See also CRS
https://crsreports.congress.gov
U.S.-European Relations in the 116th Congress
IF11094
Kristin Archick, Specialist in European Affairs
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https://crsreports.congress.gov | IF11094 · VERSION 9 · UPDATED