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Updated October 28, 2020
Europe, COVID-19, and U.S. Relations
COVID-19 in Europe
harder than the first wave. Although rising new infections
Like most of the rest of the world, European governments
may be due partly to increased testing, the second surge
and the European Union (EU) have struggled to manage the
follows the relaxation of restrictions on social and
Coronavirus Disease 2019 (COVID-19) pandemic.
economic activity in many European countries over the
European leaders have characterized the pandemic as
summer and the onset of colder weather. To date, death
Europe’s biggest challenge since the Second World War,
rates across Europe appear lower than during the first wave,
with potentially far-reaching political, social, and economic
but many public health officials predict these rates may
consequences beyond the public health impact. COVID-19
climb, given the rise in cases and hospitalizations.
also has added new tensions to an already strained U.S.-
European partnership. Members of Congress may be
European Responses
interested in COVID-19’s implications for U.S. relations
In March 2020, in response to the first wave of the
with Europe, including in NATO and with the EU, and in
pandemic, nearly all European governments imposed
how the pandemic might alter certain U.S.-European
national “lockdown” restrictions and social-distancing
dynamics, especially vis-à-vis China.
measures—including banning large gatherings, closing
schools and nonessential businesses, and restricting
Statistics
movement—although these measures varied by country in
The first wave of the pandemic in Europe occurred in
strictness and other aspects. Most European governments
spring 2020 but subsided in the summer. A second wave
also enacted national border controls. Sweden took a
began in early fall 2020. As of late October 2020, about
notably different approach that trusted citizens to practice
6.6 million confirmed COVID-19 infections and over
social distancing and imposed few mandatory restrictions;
215,000 deaths had been reported across the 27-member
some public health experts remain skeptical about this
EU, the United Kingdom (UK), Norway, and Switzerland
policy’s success in building immunity among the general
(out of a combined population of roughly 527 million).
public and contend it failed to protect the most vulnerable.
European governments began implementing phased
Table 1. COVID-19 Cases and Deaths in Europe:
reopening plans in mid-April and early May 2020. Most
Top 10 Affected Countries
European leaders stressed the need for continued social
(by number of cases, as of end of October 2020)
distancing, and many governments required the use of
facemasks, especially indoors.
Deaths
Case
Country
Cases
Deaths
per
Fatality
The pandemic has spurred serious economic difficulties
100,000
Rates
throughout Europe. For 2020, the EU forecasts its total
economy will contract by 8.3% and average unemployment
France
1,244,242
35,582
53.12
2.9%
across the bloc will rise to 9%. The UK’s economy entered
Spain
1,116,738
35,298
75.55
3.2%
into recession in August 2020. Measures enacted by
European governments to mitigate the economic downturn
UK
920,664
45,455
68.36
4.9%
include loan programs and credit guarantees for companies,
Italy
564,778
37,700
62.38
6.7%
income subsidies for affected workers, tax deferrals, and
debt repayment deferments.
Germany
463,419
10,121
12.20
2.2%
As COVID-19 cases began to increase again in early fall,
Belgium
333,718
10,899
95.42
3.3%
European governments initially attempted to avoid a second
Netherlands
318,152
7,204
41.81
2.3%
round of national lockdowns, opting instead for targeted
restrictions on regional or local virus “hot spots” to
Czech Rep.
284,033
2,547
23.97
0.9%
preserve economic recovery and in light of growing
Poland
280,229
4,615
12.15
1.6%
“pandemic fatigue” and public protests. Most governments
have kept schools open, but many have been implementing
Romania
217,216
6,574
33.76
3.0%
progressively more restrictive measures. These measures
Source: Johns Hopkins University School of Medicine, Coronavirus
have included, for example, imposing curfews, closing or
Resource Center, October 28, 2020, updated daily at
restricting the operation of restaurants and bars, further
https://coronavirus.jhu.edu/.
limiting social gatherings, and expanding mandatory mask
usage. By the end of October, Belgium, the Czech
As seen in Table 1, France, Spain, and the UK have
Republic, France, Germany, Ireland, Italy, Spain, and
experienced the largest number of infections. The second
others had reimposed national restrictions, although
wave is hitting several Central and Eastern European
measures in some countries are less stringent than during
countries—including the Czech Republic and Poland—
the first wave.
https://crsreports.congress.gov
Europe, COVID-19, and U.S. Relations
EU Actions
Relations with China
Although national governments retain control over most
Despite current U.S.-European tensions, some experts
aspects of health policy, the EU has sought to play a leading
contend that COVID-19 could prompt a closer alignment of
role in managing the European response to the pandemic.
U.S. and European policy interests with respect to China.
Critics contend the EU lacked a coherent plan in the early
The Trump Administration and some in Congress have
stages of the crisis and member states initially pursued
voiced apprehension about China’s efforts to enhance its
disparate strategies, but many analysts assess that the EU
influence in Europe. Notwithstanding initial concerns that
has made progress in overcoming internal discord. The EU
China’s so-called facemask diplomacy would build
coordinated the imposition of bloc-wide travel restrictions
goodwill, many analysts now assess that the pandemic and
on most foreign visitors; worked to ensure the provision of
its aftermath—including China’s waging of a pandemic-
sufficient personal protective equipment (PPE) and other
related disinformation campaign in Europe—may harden
medical supplies across Europe; and is supporting research
European attitudes toward China. For some Europeans, the
and development (R&D) of treatments, diagnostics, and
pandemic has highlighted Europe’s overreliance on China
vaccines, in part through leading international donor efforts.
in global supply chains and the vulnerability of its critical
infrastructure and companies to foreign takeover. China’s
Promoting economic recovery has been another area of EU
COVID-19-related actions appear to be contributing to
focus. The EU approved a €540 billion (about $640 billion)
making some European governments—such as those in the
financial aid package for workers, businesses, and member
UK and France—more hesitant about involving Chinese
states. It is planning longer-term support through a €750
telecommunications company Huawei in building out their
billion (around $890 billion) recovery fund—which would
fifth generation (5G) wireless networks. The Trump
include issuing EU bonds backed jointly by member
Administration has urged European allies to exclude
states—attached to a €1.1 trillion (roughly $1.3 trillion)
Huawei for security reasons. The United States and the EU
seven-year budget. The European Central Bank, which
launched a new dialogue on China in October 2020 to
manages the EU’s common currency (the euro) used by 19
discuss both common concerns and policy differences.
members, launched an emergency bond-buying program
totaling €1.35 trillion (about $1.6 trillion) as of June 2020.
Congressional Interests
Many Members of Congress retain a long-standing interest
NATO’s Role
in European affairs and the transatlantic partnership, despite
NATO and allied military personnel, including from the
periodic foreign policy, security, or trade differences. Some
United States, have taken an active role in assisting civilian
analysts argue that the pandemic requires more robust U.S.-
responses to COVID-19 in Europe and beyond. Although
European cooperation. Potential areas for congressional
NATO traditionally focuses on military threats, the alliance
consideration may include the following:
possesses command and control and logistics capabilities to
coordinate multilateral responses to a range of security
The extent of U.S.-European collaboration on COVID-
challenges, including natural disasters and the COVID-19
19 in existing forums, such as NATO or the G-7, and
pandemic. Among other measures, NATO officials report
possible new initiatives, such as a U.S.-EU dialogue
that allied military forces have flown over 350 flights to
and/or an early warning system on global health threats.
transport equipment and thousands of medical personnel
Possibilities for enhancing U.S.-European economic
and have helped to build over 1,000 field hospitals across
cooperation to help promote financial recovery on both
the alliance. In an effort to bolster its pandemic response
sides of the Atlantic, including through potential new
capacities, in June 2020, NATO agreed to establish a
U.S.-EU and U.S-UK free trade agreements.
stockpile of medical equipment and a new fund to enable
rapid distribution of medical supplies and services.
Ways in which the United States and Europe might
work together to reduce supply chain vulnerabilities for
Impact on U.S.-European Relations
PPE and other medical equipment, for example by
Under the Trump Administration, significant U.S.-
deepening existing U.S.-EU regulatory cooperation on
European divisions exist on trade and tariffs, defense
pharmaceuticals and medical devices.
spending, the role of multilateral institutions, and key
foreign policy concerns (including with respect to Russia,
Options for countering COVID-19 disinformation
China, and the Middle East). Pandemic-related travel bans;
campaigns that have targeted the United States and its
competition for PPE, medical equipment, and the R&D of
European allies and are believed to be backed by China,
vaccines and treatments; and the U.S. decision to withdraw
Russia, and other foreign powers.
from the World Health Organization have generated further
Prospects for and challenges to greater U.S.-European
transatlantic friction. Many analysts consider U.S. and
coordination in addressing China’s geopolitical and
European leadership as instrumental in managing past
economic rise.
global public health crises, such as the 2014-2016 Ebola
outbreak, but view diplomatic cooperation on the COVID-
Kristin Archick, Specialist in European Affairs
19 pandemic as largely lacking. The Trump Administration
Paul Belkin, Analyst in European Affairs
maintains that it is working closely with European partners
Sarah E. Garding, Analyst in European Affairs
to address various aspects of the pandemic, including in
Derek E. Mix, Acting Section Research Manager
NATO and the Group of 7 (G-7) leading industrialized
democracies. U.S. and EU scientific and regulatory experts
IF11635
also have established technical dialogues on pandemic-
related issues.
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Europe, COVID-19, and U.S. Relations
Disclaimer
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