Updated June 1, 2021
U.S.-European Relations in the 117th Congress
A Relationship in Flux?
have worked together on many common challenges—from
Since the end of the Second World War, successive U.S.
promoting stability in the Balkans and Afghanistan to
Administrations and many Members of Congress have
addressing Russian aggression in Ukraine to countering
supported a close U.S. partnership with Europe. Often
terrorism and other transnational threats. U.S.-EU
termed the transatlantic relationship, the U.S.-European
cooperation has been a driving force in liberalizing world
partnership encompasses the NATO alliance, relations with
trade. Experts point out that the well-honed habits of U.S.-
the European Union (EU), and extensive bilateral political
European political, military, and intelligence cooperation
and economic ties. Despite periodic tensions over the past
are unique and cannot be easily replicated with other
70 years, U.S. and European policymakers have valued the
international actors. U.S. engagement in Europe also helps
transatlantic partnership as serving their respective
limit Russian, Chinese, or other possible malign influences.
geostrategic and economic interests.
At times, U.S. officials and analysts have expressed
The former Trump Administration questioned the tenets of
frustration with certain aspects of the transatlantic
the post–World War II transatlantic security and economic
relationship. Previous U.S. Administrations and many
architecture to an unprecedented extent. President Trump’s
Members of Congress have criticized what they view as
criticisms of NATO, the EU, and key European countries,
insufficient European burden sharing in NATO, and some
as well as numerous U.S.-European policy divisions,
have questioned the costs of the U.S. military presence in
severely strained relations. European officials have
Europe. U.S. policymakers have long complained about EU
welcomed efforts by the Biden Administration to decrease
regulatory barriers to trade and that the EU lacks a single
tensions and renew the transatlantic partnership, although
voice on many foreign policy issues. Some U.S. analysts
various challenges persist. The 117th Congress may evaluate
have argued that a close partnership with Europe at times
current U.S. interests in Europe and prospects for future
requires compromise and may slow certain U.S. decisions.
U.S.-European relations and cooperation.
(See also CRS Report R45745, Transatlantic Relations:
U.S. Interests and Key Issues.)
Transatlantic Relations and U.S. Interests
U.S. policymakers have long regarded both NATO and the
Europe and the Trump Administration
EU as crucial to maintaining peace and stability in Europe
During the Trump Administration, U.S.-European relations
and stymieing big-power competition that cost over
faced significant challenges. The Administration asserted
500,000 American lives in two world wars. The United
support for NATO and its Article 5 mutual defense
States spearheaded NATO’s creation in 1949 and
commitment, but critics argued that President Trump’s
encouraged the European integration project from its
perceived transactional view of NATO and his strident calls
inception in the 1950s. During the Cold War, NATO and
for more European defense spending were damaging
the European project were considered essential to deterring
alliance cohesion. The Administration’s seeming hostility
the Soviet threat. With strong U.S. support, NATO and the
toward the EU also surprised the bloc. President Trump
EU have enlarged since the 1990s, extending security and
voiced support for the UK’s decision to leave the EU
prosperity across the European continent.
(“Brexit”) and contended that the EU engaged in unfair
trade practices. EU officials were concerned by what they
The U.S. and European economies are deeply intertwined.
viewed as protectionist U.S. trade policies, including the
In 2019, the EU accounted for about one-fifth of total U.S.
use of tariffs, and the Administration’s overall skepticism
trade in goods and services. The United States and the EU
toward multilateralism and international institutions.
are each other’s largest source and destination for foreign
direct investment. According to the U.S. Bureau of
U.S.-European divisions emerged on a wide array of issues,
Economic Analysis, the transatlantic economy—including
from aspects of relations with Russia and China to policies
the EU and non-EU countries such as the United Kingdom
toward Iran, Syria, Afghanistan, the Israeli-Palestinian
(UK), Norway, and Switzerland—typically generates over
conflict, arms control, climate change, and managing the
$5 trillion per year in foreign affiliate sales and directly
Coronavirus Disease 2019 (COVID-19) pandemic.
employs roughly 9 million workers on both sides of the
Repeated perceived breakdowns in coordination and
Atlantic. (See also CRS In Focus IF10930, U.S.-EU Trade
consultation with the Trump Administration also troubled
and Investment Ties: Magnitude and Scope.)
European officials, especially in relation to U.S. military
actions in Syria and Afghanistan and a plan to draw down
U.S. leadership of NATO and cooperation with the EU has
U.S. forces in Germany.
helped to foster democratic and prosperous European allies
that, in turn, have bolstered U.S. foreign and security
Some Trump Administration officials sought to downplay
policies, the multilateral trading system, and the credibility
concerns about the transatlantic partnership’s demise. They
of U.S. global leadership. The United States and Europe
noted the Administration’s support for NATO initiatives to
https://crsreports.congress.gov
U.S.-European Relations in the 117th Congress
deter Russia, efforts to de-escalate U.S.-EU trade tensions,
Issues for Congress
and launch of a U.S.-EU dialogue on China in 2020.
Potential issues for deliberation in the 117th Congress
Advocates of President Trump’s approach toward Europe
include the following:
contend that it resulted in greater European efforts to spend
more on defense and to address U.S.-EU trade inequities.
NATO. The 116th Congress passed legislation
reaffirming U.S. support for NATO. The 117th Congress
The Biden Administration and Future Prospects
may assess ongoing allied efforts to increase defense
The Biden Administration has prioritized bolstering
spending; whether the United States should take a more
relations with Europe and rebuilding trust. President Biden
comprehensive view of burden sharing; the U.S. force
has reiterated strong U.S. support for NATO and Article 5,
posture in Europe; NATO efforts to deter Russia; and
NATO’s
halted plans to reduce U.S. forces in Germany, and pledged
progress in addressing terrorism, cyberattacks,
to work with the EU and European governments on
and hybrid threats.
common global concerns. President Biden’s first trip abroad
U.S.-EU Agenda. In December 2020, EU officials
as President is scheduled for Europe in mid-June 2021.
proposed a New EU-US Agenda for Global Change
centered on cooperation in four key areas: responding to
Biden Administration efforts to strengthen the transatlantic
the COVID-19 pandemic; addressing climate change
partnership include enhancing consultation and
and other environmental challenges; strengthening
coordination. The Administration coordinated imposing
democracy and security; and working together on trade,
human rights-related sanctions on Russian officials with the
technology, and digital governance. Congress may be
EU and on Chinese officials with both the EU and UK,
interested in exploring prospects for future U.S.-EU
consulted closely with NATO allies on the planned
collaboration. Congress also may consider how various
withdrawal of U.S. forces from Afghanistan, and restarted
challenges facing the EU—including economic recovery
the U.S.-EU dialogue on China. European officials have
from the pandemic and democratic backsliding in some
welcomed the renewed U.S. commitment to multilateral
EU members—could affect the U.S.-EU partnership.
cooperation—signaled, for example, by President Biden’s
decisions to reverse Trump Administration policies and
U.S.-EU Economic Relations. In 2018, the Trump
rejoin the World Health Organization and the Paris
Administration notified Congress of negotiations on a
Agreement on climate change—and U.S. engagement on
U.S.-EU trade liberalization agreement under Trade
ways to revive the 2015 nuclear deal with Iran. The Biden
Promotion Authority, but talks stalled amid discord on
Administration and the EU also are working to resolve a
the scope, especially with respect to agriculture. The
long-standing dispute over aircraft subsidies and are taking
117th Congress may be interested in examining U.S.-EU
steps to address tensions over steel and aluminum tariffs.
efforts to resolve trade tensions and an EU proposal for
a new U.S.-EU Trade and Technology Council intended
Despite the improved overall tenor of U.S.-European
to promote greater cooperation in these areas.
relations, several issues continue to pose challenges. The
Biden Administration is likely to maintain pressure on
Brexit. The UK exited the EU in January 2020 and
ended its participation in the EU’s singl
NATO allies to meet their agreed defense spending goals.
e market and
Like the Trump Administration, the Biden Administration
customs union in December 2020. Congress may review
Brexit’s implications
opposes the Nord Stream 2 gas pipeline project (from
for U.S.-UK and U.S.-EU
Russia to Germany). Some experts question the extent of
relations, for NATO, and for the Northern Ireland peace
U.S.-European policy alignment on China. Although EU
process. Some in Congress support a future U.S.-UK
views toward China may be hardening due to human rights
free trade agreement; U.S.-UK negotiations began in
concerns and other issues, many in Europe are wary about a
May 2020, but it is unclear whether the Biden
possible new U.S.-China “Cold War” and are mindful of
Administration will continue with these talks.
Europe’s significant economic ties to China. The EU has
Russia. Congress has consistently condemned Russian
reacted coolly to President Biden’s support for waiving
aggression, including in Ukraine, and Russian influence
intellectual property rights on COVID-19 vaccines and
operations in Europe and the United States. The 116th
other Biden Administration trade and economic initiatives.
Congress enacted sanctions aimed at curbing Russian
Long-standing U.S.-EU differences on data privacy and
energy export pipelines to Europe. Russian cyber
digital technology issues also persist.
capabilities, European vulnerabilities to conventional
and hybrid threats, and U.S. and European efforts to
Some European policymakers and analysts are skeptical
address human rights violations in Russia also may be of
about whether the United States will remain a credible
interest in the 117th Congress.
global leader and reliable partner in the long term and argue
that Europe must be better prepared to address future
China. Many Members of Congress have expressed
challenges on its own. The EU has put new emphasis on
concern about China’s growing strategic interest and
enhancing defense cooperation and concluding trade
financial investments in Europe, especially with respect
agreements with other countries and regions, including
to fifth generation (5G) network security and other
Canada, Japan, and Latin America. These and other efforts
critical infrastructure. Congress may examine how
to position the EU as a key international player (especially
Chinese activities in Europe could affect transatlantic
in areas such as data protection and climate change) are
relations, the extent to which European views on China
likely to remain EU imperatives for the foreseeable future.
may be shifting due to human rights concerns and other
tensions in EU-China relations, and possibilities for
U.S.-European policy coordination toward China.
https://crsreports.congress.gov
U.S.-European Relations in the 117th Congress
IF11094
Kristin Archick, Specialist in European Affairs
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https://crsreports.congress.gov | IF11094 · VERSION 13 · UPDATED