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Updated December 29, 2020
Europe, COVID-19, and U.S. Relations
COVID-19 in Europe
harder than the first wave. Although the rise in new
Like most of the rest of the world, European governments
infections may be due partly to more testing, the second
and the European Union (EU) have struggled to manage the
surge followed a 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 continue to increase throughout Europe.
with potentially far-reaching political, social, and economic
consequences beyond the public health impact. COVID-19
European Responses
also has added tensions to a strained U.S.-European
In March 2020, in response to the first wave of the
partnership. Members of Congress may be interested in
pandemic, nearly all European governments imposed
COVID-19’s implications for U.S. relations with Europe,
national “lockdown” restrictions and social-distancing
including in NATO and with the EU, and in how the
measures—including banning large gatherings, closing
pandemic might alter certain U.S.-European dynamics,
schools and nonessential businesses, and restricting
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 December 2020, about
some public health experts contend this policy failed to
17.7 million confirmed COVID-19 infections and roughly
protect the most vulnerable or to build immunity among the
433,000 deaths had been reported across the 27-member
general public. European governments began implementing
EU, the United Kingdom (UK), Norway, and Switzerland
phased reopening plans in mid-April and early May 2020.
(out of a combined population of roughly 527 million).
Most European leaders stressed the need for continued
social distancing, and many governments required the use
Table 1. COVID-19 Cases and Deaths in Europe:
of facemasks, especially indoors.
Top 10 Affected Countries
(by number of cases, as of end of December 2020)
The pandemic has spurred serious economic difficulties
throughout Europe. For 2020, the EU forecasts its total
Deaths
Case
economy will contract by 7.4% and average unemployment
Country
Cases
Deaths
per
Fatality
across the bloc will rise to 7.7%. Projections suggest the
100,000
Rates
UK economy will contract by roughly 11% in 2020.
Measures enacted by European governments to mitigate the
France
2,619,616
63,235
94.40
2.4%
economic downturn include loan programs and credit
UK
2,336,688
71,217
107.11
3.0%
guarantees for companies, income subsidies for affected
workers, tax deferrals, and debt repayment deferments.
Italy
2,056,277
72,370
119.76
3.5%
As COVID-19 cases began to increase again in early fall
Spain
1,879,413
50,122
107.27
2.7%
2020, European governments initially attempted to avoid a
Germany
1,672,643
31,145
37.56
1.9%
second round of national lockdowns, opting instead for
targeted restrictions on regional or local virus “hot spots” to
Poland
1,261,010
27,147
71.48
2.2%
preserve economic recovery and in light of growing
Netherlands
781,467
11,135
64.62
1.4%
“pandemic fatigue” and public protests. By late October,
Belgium, the Czech Republic, France, Germany, Ireland,
Czech Rep.
674,340
11,152
104.95
1.7%
Italy, Spain, and others had reimposed national restrictions,
Belgium
639,734
19,234
168.39
3.0%
although most countries kept schools open and measures in
some were less stringent than during the first wave. By
Romania
618,429
15,334
78.74
2.5%
December, amid mounting infections and growing concerns
Source: Johns Hopkins University School of Medicine, Coronavirus
about a faster-spreading variant of the virus first detected in
Resource Center, December 29, 2020, updated daily at
the UK, some European governments had imposed more
https://coronavirus.jhu.edu/.
severe lockdowns—including closing schools and
nonessential shops. Most EU countries also have restricted
As seen in Table 1, France, the UK, and Italy have
travel from the UK. EU member states and the UK have
experienced the largest number of infections. The second
begun vaccination programs, but social distancing measures
wave has hit several Central and Eastern European
and limits on economic activities are expected to remain in
countries—including Poland and the Czech Republic—
place throughout Europe for several months at least.
https://crsreports.congress.gov
Europe, COVID-19, and U.S. Relations
EU Actions
regulatory experts also have established technical dialogues
Although national governments retain control over most
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 recent 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 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—has hardened
The EU is procuring vaccines on behalf of all member
European attitudes toward China. For some Europeans, the
states; EU regulators approved the first vaccine for use
pandemic has highlighted Europe’s overreliance on China
throughout the bloc in late December 2020.
in global supply chains and the vulnerability of its critical
infrastructure and companies to foreign takeover. China’s
The EU also is focused on promoting economic recovery.
COVID-19-related actions may be contributing to decisions
In April 2020, the EU agreed a €540 billion (about $660
by some European governments—including the UK and
billion) financial aid package for workers, businesses, and
France—to ban or limit the participation of Chinese
member states. The EU is finalizing a €750 billion (around
telecommunications company Huawei in building out their
$918 billion) recovery fund—to include issuing EU bonds
fifth generation (5G) wireless networks. The United States
backed jointly by member states—attached to a recently
and the EU launched a new dialogue on China in October
approved €1.1 trillion (roughly $1.3 trillion) budget for
2020 to discuss common concerns and policy differences.
2021-2027. The European Central Bank, which manages
The EU hopes to intensify cooperation toward China with
the EU’s common currency (the euro) used by 19 members,
the incoming Biden Administration.
established an emergency bond-buying program totaling
€1.8 trillion (about $2.2 trillion) as of December 2020.
Congressional Interests
Many Members of Congress retain a long-standing interest
NATO’s Role
in European affairs and the transatlantic partnership. Some
NATO and allied military personnel, including from the
analysts argue that the pandemic requires more robust U.S.-
United States, have taken an active role in assisting civilian
European cooperation. Potential areas for congressional
responses to COVID-19 in Europe and beyond. Although
consideration may include the following:
NATO traditionally focuses on military threats, it possesses
command and control and logistics capabilities to
The extent of U.S.-European collaboration on COVID-
coordinate multilateral responses to a range of security
19 in existing forums, such as NATO or the G-7, and
challenges, including natural disasters and the COVID-19
possible new initiatives, such as a U.S.-EU dialogue
pandemic. Among other measures, NATO officials report
and/or an early warning system on global health threats.
that allied military forces have delivered critical supplies
around the world and helped to build field hospitals and
Possibilities for enhancing U.S.-European economic
conduct testing across the alliance. In an effort to bolster its
cooperation to help promote financial recovery on both
pandemic response capacities, in June 2020, NATO agreed
sides of the Atlantic, including through potential new
to establish a stockpile of medical equipment and a new
U.S.-EU and U.S-UK free trade agreements.
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,
Options for countering COVID-19 disinformation
defense spending, and a wide range of foreign policy issues.
campaigns that have targeted the United States and its
Pandemic-related travel bans; competition for PPE, medical
European allies and are believed to be backed by China,
equipment, and the R&D of vaccines and treatments; and
the Administration’s
Russia, and other foreign powers.
decision to withdraw the United States
from the World Health Organization 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 to date. The Trump
Paul Belkin, Analyst in European Affairs
Administration maintains that it has worked with European
Sarah E. Garding, Analyst in European Affairs
partners to address various aspects of the pandemic,
Derek E. Mix, Acting Section Research Manager
including in NATO and the Group of 7 (G-7) leading
industrialized democracies. U.S. and EU scientific and
IF11635
https://crsreports.congress.gov
Europe, COVID-19, and U.S. Relations
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https://crsreports.congress.gov | IF11635 · VERSION 7 · UPDATED