Updated January 22, 2021
U.S.-European Relations in the 117th Congress
A Relationship in Flux?
U.S. leadership of NATO and cooperation with the EU has
Since the end of the Second World War, s uccessive 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 the NATO alliance, relations with
have worked together on many common challenges—from
the European Union (EU), and extensive bilateral political
promoting stability in the Balkans and Afghanistan to
and economic ties . Despite periodic tensions over the past
addressing Russian aggression in Ukraine to countering
70 years, U.S. and European policymakers have valued the
terrorism and other transnational threats. U.S.-EU
transatlantic partnership as serving their respective
cooperation has been a driving force in liberalizing world
geostrategic and economic interests.
trade. Experts point out that the well-honed habits of U.S.-
European political, military, and intelligence cooperation
The former Trump Administration questioned the tenets of
are unique and cannot be easily replicated with other
the post–World War II transatlantic security and economic
international actors. U.S. engagement in Europe also helps
architecture to an unprecedented extent. President Trump’s
limit Russian, Chinese, or other possible malign influences.
criticisms of NATO, the EU, and key European countries
prompted significant concerns in Europe. Trump
At times, U.S. officials and analysts have expressed
Administration officials contended the United States
frustration with certain aspects of the transatlantic
remained committed to NATO and close U.S.-European
relationship. Previous U.S. Administrations and many
ties, but policy divergences existed on a range of regional
Members of Congress have criticized what they view as
and global issues. Managing the spread of Coronavirus
insufficient European burden sharing in NATO, and some
Disease 2019 (COVID-19) further strained U.S.-European
have questioned the costs of the U.S. military presence in
relations. Many European leaders hope to work with the
Europe. U.S. policymakers have long complained about EU
new Biden Administration to renew and strengthen the
regulatory barriers to trade and that the EU lacks a single
transatlantic partnership. The 117th Congress may evaluate
voice on many foreign policy issues. Some U.S. analysts
current U.S. interests in Europe and prospects for future
have argued that a close partnership with Europe at times
U.S.-European relations and cooperation.
requires compromise and may slow certain U.S. decisions.
Transatlantic Relations and U.S. Interests
Europe and the Trump Administration
U.S. policymakers have long regarded both NATO and the
The Trump Administration’s 2017 National Security
EU as crucial to maintaining peace and stability in Europe
Strategy stated that “the United States is safer when Europe
and stymieing big-power competition that cost over
is prosperous and stable, and can help defend our shared
500,000 American lives in two world wars . The United
interests and ideals.” The Administration asserted support
States spearheaded NATO’s creation in 1949 and
for NATO and its Article 5 mutual defense commitment but
encouraged the European integration project from its
argued that NATO would be stronger when all members
inception in the 1950s. During the Cold W ar, NATO and
“pay their fair share.” Critics contend, however, that
the European project were considered essential to deterring
President Trump’s perceived transactional view of NATO
the Soviet threat. With strong U.S. support, NATO and the
and his almost singular focus on European defense
EU have enlarged since the 1990s, extending security and
spending was damaging to alliance cohesion. The Trump
prosperity across the European continent.
Administration’s seeming hostility toward the EU also
surprised the bloc. President Trump voiced support for the
The U.S. and European economies are deeply intertwined.
UK’s decision to leave the EU (“Brexit”) and contended
In 2019, the EU accounted for about one-fifth of total U.S.
that the EU engages in unfair trade practices detrimental to
trade in goods and services. The United States and the EU
U.S. economic interests. EU officials were concerned by
are each other’s largest source and destination for foreign
what they viewed as protectionist U.S. trade policies ,
direct investment. According to data from the U.S. Bureau
including the use of tariffs.
of Economic Analysis, the transatlantic economy—
including the EU and non-EU countries such as the United
U.S.-European divisions emerged on many other issues as
Kingdom (UK), Norway, and Switzerland—typically
well, from aspects of relations with Russia and China to
generates over $5 trillion per year in foreign affiliate sales
Syria, the Middle East peace process, and arms control.
and directly employs roughly 9 million workers on both
European leaders and the EU opposed the Trump
sides of the Atlantic. (See also CRS In Focus IF10930,
Administration’s decisions to withdraw from the Paris
U.S.-EU Trade and Investment Ties: Magnitude and Scope,
Agreement on climate change, the 2015 multilateral nuclear
by Shayerah Ilias Akhtar.)
deal with Iran, and the World Health Organization amid the
https://crsreports.congress.gov
U.S.-European Relations in the 117th Congress
COVID-19 pandemic. Repeated perceived breakdowns in
Potential issues for deliberation in the 117th Congress
coordination and consultation with the Trump
include the following:
Administration also troubled European officials . Key
examples included President Trump’s decision in October
NATO. The 116th Congress passed legislation
2019 to withdraw U.S. forces fighting the Islamic State
reaffirming U.S. support for NATO and held hearings
terrorist group in Syria and the July 2020 announcement
on the alliance’s future. The 117th Congress may assess
that the Administration planned to draw down U.S. military
ongoing allied efforts to increase defense spending;
forces in Germany.
whether the United States should take a more
comprehensive view of burden sharing; plans for the
Supporters maintain that President Trump’s approach
U.S. force posture in Europe; NATO efforts to deter
resulted in greater European efforts to spend more on
Russia; and NATO’s progress in addressing terrorism,
defense and to address inequities in U.S.-EU economic
cyberattacks, and hybrid threats.
relations. Some downplay concerns about the transatlantic
partnership’s demise. Among other example
U.S.-EU Agenda. As noted, the EU has expressed
s, they note that
interest in enhancing cooperation with the United States,
the Trump Administration endorsed new NATO initiatives
including on COVID-19 and climate change, and
to deter Russia, increased the U.S. military footprint in
Congress may be interested in exploring prospects for
Europe, and attempted to de-escalate trade tensions with the
future U.S.-EU collaboration. The EU also is contending
EU. They also point to Administration efforts to foster
with an economic downturn due to the pandemic,
dialogue with the EU on some areas of common interest,
democratic backsliding in some EU countries, pressures
including with respect to COVID-19 and China.
due to migration, and terrorism. Congress may consider
The Biden Administration and Future Prospects
whether and how such issues could affect the EU and
the U.S.-EU partnership.
With the Biden Administration’s entrance into office, many
European leaders hope to improve and bolster relations with
U.S.-EU Economic Relations. Congress may review
the United States. NATO officials have welcomed President
progress on a U.S.-EU trade liberalization agreement. In
Biden’s commitment to the alliance as a cornerstone of
2018, the Trump Administration notified Congress of
transatlantic security. EU officials have proposed a New
the negotiations under Trade Promotion Authority. U.S.-
EU-US Agenda for Global Change centered on promoting
EU talks stalled amid discord on their scope, especially
U.S.-EU cooperation in four key areas: responding to the
with respect to agriculture. The 117th Congress also may
COVID-19 pandemic; addressing climate change and other
be interested in evaluating an EU proposal to establish a
environmental challenges; strengthening democracy and
new U.S.-EU Trade and Technology Council intended
security; and working together on trade, technology, and
to promote greater cooperation in these areas.
digital governance.
Brexit. The UK exited the EU in January 2020 and
ended its participation in the EU’s single market and
Many Biden Administration policies are expected to align
customs union at the conclusion of a transition period in
more closely with European positions. The new
Administration’s stated commitment to work with
December 2020. Congress may review Brexit’s
implications for U.S.-UK and U.S.-EU relations, for
international partners in multilateral institutions and on key
NATO, and for the Northern Ireland peace process.
challenges such as China could help ease tensions and
Some in Congress support a future U.S.-UK free trade
rebuild trust with European governments and the EU. At the
agreement; U.S.-UK negotiations began in May 2020.
same time, certain U.S.-European differences likely will
persist with respect to NATO defense spending, trade,
Russia. Congress has consistently condemned Russian
digital technology, data privacy, and how best to address
aggression, including in Ukraine, and Russian influence
the strategic and economic concerns posed by China.
operations in Europe and the United States. The 116th
Congress enacted sanctions aimed at curbing Russian
Some European policymakers and analysts continue to
energy export pipelines to Europe and considered
question whether the United States will remain a credible
sanctions to address Russian election interference and
global leader and reliable partner in the long term and argue
other activities. Russian cyber capabilities, European
that Europe must be better prepared to address future
vulnerabilities to conventional and hybrid threats, and
challenges on its own. The EU has put new emphasis on
human rights violations in Russia also may be of interest
enhancing defense cooperation and concluding trade
in the 117th Congress.
agreements with other countries and regions, including
China. Many Members of Congress have expressed
Canada, Japan, and Latin America. These and other efforts
concern about China’s growing strategic interest and
to position the EU as a key international player (especially
financial investments in Europe, especially with respect
in areas such as data protection and climate change) are
to fifth generation (5G) network security and other
likely to remain EU imperatives for the foreseeable future.
critical infrastructure. Congress may examine how
(See also CRS Report R45745, Transatlantic Relations:
Chinese activities in Europe could affect transatlantic
U.S. Interests and Key Issues.)
relations and possibilities for enhanced U.S.-European
Issues for Congress
policy coordination toward China.
Many Members of Congress appear to favor a strong
transatlantic partnership, despite some concerns about
Kristin Archick, Specialist in European Affairs
European positions on certain foreign policy or trade issues.
IF11094
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U.S.-European Relations in the 117th Congress
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https://crsreports.congress.gov | IF11094 · VERSION 11 · UPDATED