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Updated December 1, 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. Hospitalizations
Europe’s biggest challenge since the Second World War,
and deaths have been ticking upward throughout Europe.
with potentially far-reaching political, social, and economic
consequences beyond the public health impact. COVID-19
European Responses
also has added new tensions to an already strained U.S.-
In March 2020, in response to the first wave of the
European partnership. Members of Congress may be
pandemic, nearly all European governments imposed
interested in COVID-19’s implications for U.S. relations
national “lockdown” restrictions and social-distancing
with Europe, including in NATO and with the EU, and in
measures—including banning large gatherings, closing
how the pandemic might alter certain U.S.-European
schools and nonessential businesses, and restricting
dynamics, especially vis-à-vis China.
movement—although these measures varied by country in
strictness and other aspects. Most European governments
Statistics
also enacted national border controls. Sweden took a
The first wave of the pandemic in Europe occurred in
notably different approach that trusted citizens to practice
spring 2020 but subsided in the summer. A second wave
social distancing and imposed few mandatory restrictions;
began in early fall 2020. As of late November 2020, about
some public health experts remain skeptical about this
13.5 million confirmed COVID-19 infections and over
policy’s success in building immunity among the general
327,000 deaths had been reported across the 27-member
public and contend it failed to protect the most vulnerable.
EU, the United Kingdom (UK), Norway, and Switzerland
European governments began implementing phased
(out of a combined population of roughly 527 million).
reopening plans in mid-April and early May 2020. Most
European leaders stressed the need for continued social
Table 1. COVID-19 Cases and Deaths in Europe:
distancing, and many governments required the use of
Top 10 Affected Countries
facemasks, especially indoors.
(by number of cases, as of end of November 2020)
The pandemic has spurred serious economic difficulties
Deaths
Case
throughout Europe. For 2020, the EU forecasts its total
per
Fatality
economy will contract by 7.4% and average unemployment
Country
Cases
Deaths
100,000
Rates
across the bloc will rise to 7.7%. Projections suggest the
UK economy will contract by roughly 11% in 2020.
France
2,270,573
52,410
78.24
2.3%
Measures enacted by European governments to mitigate the
Spain
1,628,208
44,668
95.60
2.7%
economic downturn include loan programs and credit
guarantees for companies, income subsidies for affected
UK
1,621,305
58,342
87.75
3.6%
workers, tax deferrals, and debt repayment deferments.
Italy
1,585,178
54,904
90.85
3.5%
As COVID-19 cases began to increase again in early fall,
Germany
1,055,691
16,306
19.66
1.5%
European governments initially attempted to avoid a second
round of national lockdowns, opting instead for targeted
Poland
985,075
17,029
44.84
1.7%
restrictions on regional or local virus “hot spots” to
Belgium
576,599
16,547
144.87
2.9%
preserve economic recovery and in light of growing
“pandemic fatigue” and public protests. Most governments
Netherlands
527,336
9,426
54.70
1.8%
have kept schools open, but as cases increased, many
Czech Rep.
519,723
8,138
76.59
1.6%
implemented progressively more restrictive measures. Such
measures have included imposing curfews, closing or
Romania
471,536
11,193
57.48
2.4%
reducing the operation of restaurants and bars, further
Source: Johns Hopkins University School of Medicine, Coronavirus
limiting social gatherings, and expanding mandatory mask
Resource Center, November 30, 2020, updated daily at
usage. By the end of October, Belgium, the Czech
https://coronavirus.jhu.edu/.
Republic, France, Germany, Ireland, Italy, Spain, and
others reimposed national restrictions, although measures in
As seen in Table 1, France, Spain, the UK, and Italy have
some countries were less stringent than during the first
experienced the largest number of infections. The second
wave. Several governments, including the UK and France,
wave is hitting several Central and Eastern European
are expected to relax some restrictions for the upcoming
countries—including Poland and the Czech Republic—
Christmas holiday season.
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Europe, COVID-19, and U.S. Relations
EU Actions
and regulatory experts also have established technical
Although national governments retain control over most
dialogues on pandemic-related issues.
aspects of health policy, the EU has sought to play a leading
role in managing the European response to the pandemic.
Relations with China
Critics contend the EU lacked a coherent plan in the early
Despite current U.S.-European tensions, some experts
stages of the crisis and member states initially pursued
contend that COVID-19 could prompt a closer alignment of
disparate strategies, but many analysts assess that the EU
U.S. and European policy interests with respect to China.
has made progress in overcoming internal discord. The EU
The Trump Administration and some in Congress have
coordinated the imposition of bloc-wide travel restrictions
voiced apprehension about China’s efforts to enhance its
on most foreign visitors; worked to ensure the provision of
influence in Europe. Notwithstanding initial concerns that
sufficient personal protective equipment (PPE) and other
China’s facemask diplomacy would build goodwill, many
medical supplies across Europe; and is supporting research
analysts now assess that the pandemic and its aftermath—
and development (R&D) of treatments, diagnostics, and
including China’s waging of a pandemic-related
vaccines, in part through leading international donor efforts.
disinformation campaign in Europe—may harden European
The EU has signed contracts to procure several potential
attitudes toward China. For some Europeans, the pandemic
vaccines on behalf of all member states.
has highlighted Europe’s overreliance on China in global
supply chains and the vulnerability of its critical
Promoting economic recovery has been another area of EU
infrastructure and companies to foreign takeover. China’s
focus. The EU approved a €540 billion (about $640 billion)
COVID-19-related actions appear to be contributing to
financial aid package for workers, businesses, and member
making some European governments—including the UK
states. It is planning longer-term support through a €750
and France—more hesitant about involving Chinese
billion (around $890 billion) recovery fund—which would
telecommunications company Huawei in building out their
include issuing EU bonds backed jointly by member
fifth generation (5G) wireless networks. The United States
states—attached to a €1.1 trillion (roughly $1.3 trillion)
and the EU launched a new dialogue on China in October
seven-year budget. The European Central Bank, which
2020 to discuss common concerns and policy differences.
manages the EU’s common currency (the euro) used by 19
The EU hopes to intensify cooperation with the United
members, launched an emergency bond-buying program
States toward China in the future.
totaling €1.35 trillion (about $1.6 trillion) as of June 2020.
Congressional Interests
NATO’s Role
Many Members of Congress retain a long-standing interest
NATO and allied military personnel, including from the
in European affairs and the transatlantic partnership. 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.
Potential ways to reduce supply chain vulnerabilities for
PPE and other medical equipment, for example by
Impact on U.S.-European Relations
deepening existing U.S.-EU regulatory cooperation on
Under the Trump Administration, significant U.S.-
pharmaceuticals and medical devices.
European divisions have existed on trade and tariffs,
defense spending, and key foreign policy concerns
Options for countering COVID-19 disinformation
(including with respect to Russia, China, and the Middle
campaigns that have targeted the United States and its
East). Pandemic-related travel bans; competition for PPE,
European allies and are believed to be backed by China,
Russia, and other foreign powers.
medical equipment, and the R&D of vaccines and
treatments; and the Administration’s decision to withdraw
Prospects for and challenges to greater U.S.-European
the United States from the World Health Organization
coordination in addressing China’s geopolitical and
generated further transatlantic friction. Many analysts
economic rise.
consider U.S. and European leadership as instrumental in
managing past global public health crises, such as the 2014-
Kristin Archick, Specialist in European Affairs
2016 Ebola outbreak, but view diplomatic cooperation on
Paul Belkin, Analyst in European Affairs
the COVID-19 pandemic as largely lacking to date. The
Sarah E. Garding, Analyst in European Affairs
Trump Administration maintains that it has worked with
Derek E. Mix, Acting Section Research Manager
European partners to address various aspects of the
pandemic, including in NATO and the Group of 7 (G-7)
IF11635
leading industrialized democracies. U.S. and EU scientific
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Europe, COVID-19, and U.S. Relations
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