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Updated March 1, 2021
Europe, COVID-19, and U.S. Relations
COVID-19 in Europe
in many European countries over the summer and the onset
Like most of the rest of the world, European governments
of colder weather. Some experts warn that a third wave is
and the European Union (EU) have struggled to manage the
possible with the spread of more infectious virus variants.
Coronavirus Disease 2019 (COVID-19) pandemic.
European leaders have characterized the pandemic as
European Responses
Europe’s biggest challenge since the Second World War,
In March 2020, in response to the first wave of the
with potentially far-reaching political, social, and economic
pandemic, nearly all European governments imposed
consequences beyond the public health impact. Members of
national “lockdown” restrictions and social-distancing
Congress may be interested in COVID-19’s implications
measures—including banning large gatherings, closing
for U.S. relations with Europe, including in NATO and with
schools and nonessential businesses, and restricting
the EU, and in how the pandemic might alter certain U.S.-
movement—although these measures varied by country in
European dynamics , especially vis-à-vis China.
strictness and other aspects. Most European governments
also enacted national border controls. Sweden took a
Statistics
notably different approach that trusted citizens to practice
The first wave of the pandemic in Europe occurred in
social distancing and imposed few mandatory restrictions,
spring 2020 but subsided in the summer. A second wave
but many public health experts questioned this strategy.
began in early fall 2020. As of early March 2021, about
European governments began implementing phased
27.2 million confirmed COVID-19 infections and roughly
reopening plans in mid-April and early May 2020. Most
679,000 deaths had been reported across the 27-member
European leaders stressed the need for continued social
EU, the United Kingdom (UK), Norway, and Switzerland
distancing, and many governments required the use of face
(out of a combined population of roughly 527 million).
masks, especially indoors.
Table 1. COVID-19 Cases and Deaths in Europe:
The pandemic has spurred serious economic difficulties
Top 10 Affected Countries
throughout Europe. The EU estimates its total economy
(by number of cases, as of March 1, 2021)
contracted by 6.3% in 2020 but will grow by 3.7% in 2021.
The speed of economic recovery, however, is expected to
Deaths
Case
vary among member states. Measures enacted by European
Country
Cases
Deaths
per
Fatality
governments to mitigate the economic downturn include
100,000
Rates
loan programs and credit guarantees for companies, income
subsidies for affected workers, tax deferrals, and debt
UK
4,188,827
123,083
185.12
2.9%
repayment deferments.
France
3,747,263
85,741
128.00
2.3%
As COVID-19 cases began to increase again in early fall
Spain
3,188,553
69,142
147.98
2.2%
2020, European governments attempted to avoid a second
round of national lockdowns, opting instead for targeted
Italy
2,925,265
97,699
161.67
3.3%
restrictions on regional or local virus “hot spots” to
Germany
2,450,295
70,152
84.59
2.9%
preserve economic recovery and in light of growing
“pandemic fatigue” and public protests. By late October,
Poland
1,706,986
43,769
115.25
2.6%
Belgium, the Czech Republic, France, Germany, Ireland,
Czech Rep.
1,235,480
20,339
191.41
1.6%
Italy, Spain, and others had reimposed national restrictions,
although most countries kept schools open and measures in
Netherlands
1,103,564
15,688
91.05
1.4%
some were less stringent than during the first wave. By
Romania
801,994
20,350
104.50
2.5%
December, amid mounting infections and growing concerns
about a faster-spreading variant of the virus first detected in
Belgium
771,511
22,077
193.28
2.9%
the UK, some European governments had closed schools
Source: Johns Hopkins University School of Medicine, Coronavirus
and nonessential shops.
Resource Center, March 1, 2021, updated daily at
EU and other European countries have begun vaccination
https://coronavirus.jhu.edu/.
programs. Officials hope that, as vaccinations proceed, they
As seen in Table 1, the UK, France, Spain, Italy, and
will enable restrictions to be eased gradually in the coming
Germany have experienced the largest number of
months. According to Oxford University data, 4.8% of the
infections. The second wave hit several Central and Eastern
total EU population and 29.6% of the UK population have
European countries—including Poland and the Czech
received at least one dose of a COVID-19 vaccine (as of
Republic—harder than the first wave. The second surge
February 28, 2021).
followed the relaxation of social and economic restrictions
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Europe, COVID-19, and U.S. Relations
EU Actions
enhance cooperation with Europe to defeat COVID-19,
Although national governments retain control over most
halted the U.S. withdrawal from the WHO, and announced
aspects of health policy, the EU has sought to play a leading
the United States will contribute up to $4 billion for
role in managing the European response to the pandemic
COVAX, a WHO-led initiative supported by the EU to
and harmonizing policies in an effort to prevent internal
deliver vaccines and treatments to developing countries.
discord and promote EU solidarity. The EU coordinated the
imposition of bloc-wide travel restrictions on most foreign
Relations with China
visitors; worked to ensure the provision of sufficient
Some experts contend that COVID-19 could prompt a
personal protective equipment (PPE) and other medical
closer alignment of U.S. and European policy interests with
supplies across Europe; and is supporting research and
respect to China. Many U.S. officials and some in Congress
development (R&D) of treatments, diagnostics, and
have voiced apprehension about China’s efforts to enhance
vaccines, in part through leading international donor efforts.
its influence in Europe. Notwithstanding initial concerns
The EU is procuring vaccines on behalf of all member
that China’s face mask diplomacy would build goodwill,
states, but production delays and relatively slow vaccine
analysts assess that the pandemic and its aftermath—
distribution have frustrated EU officials, stoked public
including China’s waging of a pandemic-related
anger, and prompted criticism of the EU initiative.
disinformation campaign in Europe—hardened European
attitudes toward China. For some Europeans, the pandemic
The EU also is focused on promoting economic recovery.
has highlighted Europe’s overreliance on China in global
In April 2020, the EU agreed on a €540 billion (about $660
supply chains and the vulnerability of its critical
billion) financial aid package for workers, businesses, and
infrastructure and companies to foreign takeover. China’s
member states. The EU is finalizing a €750 billion (around
COVID-19-related actions may be contributing to decisions
$918 billion) recovery fund—to include issuing EU bonds
by some European governments—including the UK and
backed jointly by member states—attached to a recently
France—to ban or limit the participation of Chinese
approved €1.1 trillion (roughly $1.3 trillion) budget for
telecommunications company Huawei in building out their
2021-2027. The European Central Bank, which manages
fifth generation (5G) wireless networks. The Trump
the EU’s common currency (the euro) used by 19 members,
Administration and the EU launched a new dialogue on
established an emergency bond-buying program totaling
China in October 2020. The Biden Administration and the
€1.8 trillion (about $2.2 trillion) as of December 2020.
EU have expressed interest in intensifying cooperation, but
devising a common approach to the strategic and economic
NATO’s Role
concerns posed by China likely will remain challenging.
NATO and allied military personnel, including from the
United States, have taken an active role in assisting civilian
Congressional Interests
responses to COVID-19 in Europe and beyond. Although
Many Members of Congress retain a long-standing interest
NATO traditionally focuses on military threats, it possesses
in European affairs and the transatlantic partnership. Some
command and control and logistics capabilities to
analysts argue that combatting the pandemic requires more
coordinate multilateral responses to a range of security
robust U.S.-European cooperation. Potential areas for
challenges, including natural disasters and the COVID-19
congressional consideration may include the following:
pandemic. Among other measures, NATO officials report
that allied military forces have delivered critical supplies
The extent of U.S.-European collaboration on COVID-
around the world and helped to build field hospitals and
19 in forums such as NATO or the G-7, and possible
conduct testing across the alliance. In an effort to bolster its
new U.S.-EU initiatives to improve preparedness and
pandemic response capacities, NATO also established a
early warning of global health threats
stockpile of medical equipment and a new fund to enable
Possibilities for enhancing U.S.-European economic
rapid distribution of medical supplies and services.
cooperation to help promote financial recovery on both
Impact on U.S.-European Relations
sides of the Atlantic, including through potential new
U.S.-EU and U.S-UK free trade agreements
During the Trump Administration, COVID-19 further
strained an already tense U.S.-European relationship.
Potential ways to reduce supply chain vulnerabilities for
Pandemic-related issues—including U.S. and EU travel
PPE and other medical equipment, for example by
bans; competition for PPE, medical equipment, and the
deepening existing U.S.-EU regulatory cooperation on
R&D of vaccines and treatments; and President Trump’s
pharmaceuticals and medical devices
decision to withdraw from the World Health Organization
(WHO)—generated considerable friction with many
Options for countering COVID-19 disinformation
European countries and the EU. Many analysts consider
campaigns that have targeted the United States and its
U.S. and European leadership as instrumental in managing
European allies and are believed to be backed by China,
past global public health crises, such as the 2014-2016
Russia, and other foreign powers
Ebola outbreak, but view diplomatic cooperation on the
Kristin Archick, Specialist in European Affairs
COVID-19 pandemic as largely lacking in 2020. The
Trump Administration asserted it sought to work with
Paul Belkin, Analyst in European Affairs
European partners to address various aspects of the
Sarah E. Garding, Analyst in European Affairs
pandemic, including in NATO and the Group of 7 (G-7)
Derek E. Mix, Specialist in European Affairs
leading industrialized democracies. U.S. and EU scientific
Rachel L. Martin, Research Assistant
and regulatory experts also established technical dialogues
IF11635
on pandemic-related issues. President Biden has pledged to
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Europe, COVID-19, and U.S. Relations
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https://crsreports.congress.gov | IF11635 · VERSION 9 · UPDATED