Updated June 24, 2021
U.S.-European Relations in the 117th Congress
A Relationship in Flux?
challenges—from promoting stability in the Balkans and
Since the end of the Second World War, s uccessive U.S.
Afghanistan to addressing Russian aggression in Ukraine to
Administrations and many Members of Congress have
countering terrorism. U.S.-EU cooperation has been a
supported a close U.S. partnership with Europe. Often
driving force in liberalizing world trade. Experts point out
termed the transatlantic relationship, the U.S.-European
that the well-honed habits of U.S.-European political,
partnership encompasses the NATO alliance, relations with
military, and intelligence cooperation are unique and cannot
the European Union (EU), and extensive bilateral political
be easily replicated with other international actors. U.S.
and economic ties . Despite periodic tensions over the past
engagement in Europe also helps limit Russian, Chinese, or
70 years, U.S. and European policymakers have valued the
other possible malign influences.
transatlantic partnership as serving their respective
At times, U.S. officials and analysts have expressed
geostrategic and economic interests.
frustration with certain aspects of the transatlantic
The post-World War II transatlantic security and economic
relationship. Previous U.S. Administrations and many
architecture came under considerable pressure during the
Members of Congress have criticized what they view as
Trump Administration. The unprecedented nature and
insufficient European burden sharing in NATO, and some
extent of President Trump’s criticisms of NATO, the EU,
have questioned the costs of the U.S. military presence in
and key European countries, as well as numerous U.S.-
Europe. U.S. policymakers have long-standing concerns
European policy divisions, severely strained relations.
about EU regulatory barriers to trade and that the EU lacks
European officials have welcomed Biden Administration
a single voice on many foreign policy issues. Some U.S.
efforts to decrease tensions and renew the transatlantic
analysts have argued that a close partnership with Europe at
partnership, although various U.S.-European differences in
times requires compromise and may slow certain U.S.
perspective persist. The 117th Congress may evaluate
decisions. (See also CRS Report R45745, Transatlantic
current U.S. interests in Europe and prospects for future
Relations: U.S. Interests and Key Issues.)
U.S.-European cooperation.
Europe and the Trump Administration
Transatlantic Relations and U.S. Interests
During the Trump Administration, U.S.-European relations
U.S. policymakers have long regarded both NATO and the
faced significant challenges. The Administration asserted
EU as crucial to maintaining peace and stability in Europe
support for NATO and its Article 5 mutual defense
and stymieing big-power competition that cost over
commitment, but critics argued that President Trump’s
500,000 American lives in two world wars . The United
perceived transactional view of NATO and his strident cals
States spearheaded NATO’s creation in 1949 and
for more European defense spending were damaging to
encouraged the European integration project from its
alliance cohesion. President Trump voiced support for the
inception in the 1950s. During the Cold W ar, NATO and
UK’s decision to leave the EU (“Brexit”) and contended
the European project were considered essential to deterring
that the EU engaged in unfair trade practices. EU officials
the Soviet threat. With strong U.S. support, NATO and the
were concerned by what they viewed as protectionist U.S.
EU have enlarged since the 1990s, extending security and
trade policies, including the use of tariffs.
prosperity across the European continent.
Repeated perceived breakdowns in coordination and
The U.S. and European economies are deeply intertwined.
consultation with the Trump Administration also troubled
According to U.S. Bureau of Economic Analysis data, the
European officials, especially with regard to U.S. military
transatlantic economy—including the EU and non-EU
actions in Syria and Afghanistan and a plan to draw down
countries such as the United Kingdom (UK), Norway, and
U.S. forces in Germany. Other U.S.-European divisions
Switzerland—typically generates around $6 trillion per year
existed on aspects of relations with Russia and China, the
in foreign affiliate sales and directly employs roughly 10
role of multilateral institutions, policies toward Iran, the
million workers on both sides of the Atlantic. In 2020, the
Israeli-Palestinian conflict, arms control, climate change,
EU accounted for nearly one-fifth of total U.S. trade in
and managing the Coronavirus Disease 2019 (COVID-19)
goods and services. The United States and the EU are each
pandemic. Advocates of President Trump’s approach
other’s largest source and destination for foreign direct
toward Europe maintain that it resulted in greater European
investment. (See also CRS In Focus IF10930, U.S.-EU
efforts to spend more on defense and to address U.S.-EU
Trade and Investment Ties: Magnitude and Scope.)
trade inequities, and that policy tensions and differing
interests are a constant feature of transatlantic relations and
U.S. leadership of NATO and cooperation with the EU has
not unique to the Trump Administration.
helped to foster democratic and prosperous European allies
that, in turn, have bolstered U.S. foreign and security
The Biden Administration and Future Prospects
policies and the multilateral trading system. The United
The Biden Administration has prioritized bolstering
States and Europe have worked together on many common
relations with Europe and rebuilding trust. President Biden
https://crsreports.congress.gov
U.S.-European Relations in the 117th Congress
has reiterated strong U.S. support for NATO and Article 5,
Issues for Congress
halted plans to reduce U.S. forces in Germany, and pledged
Potential areas for deliberation in the 117th Congress
to work with the EU and European governments on
include the following:
common global concerns. President Biden’s first trip abroad
as President was to Europe in mid-June 2021 and included
NATO. The June 2021 NATO summit addressed a
NATO and EU summit meetings .
range of topics, including NATO efforts to deter Russia;
concerns about China; and NATO’s progress in
Biden Administration efforts to enhance cooperation with
addressing terrorism, cyberattacks, and hybrid threats.
European allies and partners include coordinating human
Congress may examine these issues and future U.S.
rights-related sanctions on Russian and Chinese officials ,
goals for NATO as the alliance develops its next
consulting on the withdrawal of U.S. and NATO forces
strategic concept ahead of the 2022 summit. Congress
from Afghanistan, and restarting a U.S.-EU dialogue on
also may review the U.S. force posture in Europe and
China begun during the Trump Administration. European
ongoing allied efforts to increase defense spending.
officials welcome the renewed U.S. commitment to
U.S.-EU Agenda. At their June 2021 summit, the
multilateralism—signaled, for example, by President
Biden’s decisions
United States and the EU committed to work together on
to reverse Trump Administration policies
and rejoin the World Health Organization and the Paris
four key areas: ending the COVID-19 pandemic;
addressing climate change and other environmental
Agreement on climate change—and U.S. engagement on
challenges; strengthening trade, investment, and
ways to revive the 2015 nuclear deal with Iran. At the 2021
technological cooperation; and supporting democracy
U.S.-EU summit, the two sides announced they would
suspend retaliatory tariffs for five years in relation to a
and global security. Congress may consider prospects
for U.S.-EU collaboration and how various issues facing
long-standing dispute over aircraft subsidies, agree on terms
the EU—including economic recovery from the
for state support for civil aircraft manufacturers, and work
pandemic and democratic backsliding in some EU
together to address practices of nonmarket economies (such
as China) in the sector. The Biden Administration views
members—could affect the U.S.-EU partnership.
cooperation with European democracies as key to
U.S.-EU Economic Relations. Congress may be
countering challenges posed by China, Russia, and
interested in examining U.S.-EU efforts to resolve trade
authoritarian systems of government more broadly.
irritants and plans for two new initiatives launched at the
2021 U.S.-EU Summit—a Trade and Technology
Despite the improved overall tenor of U.S.-European
Council (to promote greater cooperation in areas such as
relations, differences and tensions remain. President Biden
standards for new and emerging technologies, digital
is maintaining pressure on NATO allies to meet defense
governance, and supply chain security) and a Joint
spending goals. Some allies worry about instability in
Technology Competition Policy Dialogue.
Afghanistan following the end of NATO’s military mission.
Like the Trump Administration, the Biden Administration
Brexit. The UK exited the EU in January 2020 and
opposes the Nord Stream 2 gas pipeline project (from
ended its participation in the EU’s single market and
Russia to Germany). Although NATO and EU views
customs union in December 2020. Congress may review
toward China appear to be hardening due to the country’s
Brexit’s implications for U.S.-UK and U.S.-EU
military assertiveness, human rights practices, and other
relations, for NATO, and for the Northern Ireland peace
concerns, many in Europe are wary about a possible new
process. Some in Congress support a future U.S.-UK
U.S.-China “Cold War” and are mindful of Europe’s
free trade agreement, but it is unclear whether the Biden
significant economic ties to China. The United States and
Administration will continue negotiations with the UK
the EU are working to address global steel and aluminum
begun by the Trump Administration.
overcapacity (driven mainly by China), but some in the EU
Russia. Congress has consistently condemned Russian
are frustrated that the Biden Administration has not lifted
aggression, including in Ukraine, and Russian influence
the tariffs on these metals imposed by the Trump
operations in Europe and the United States. Congress
Administration. U.S.-EU frictions on cross-border data
has enacted sanctions aimed at curbing Russian energy
flows, privacy, and digital technology issues also persist.
export pipelines to Europe. Transatlantic efforts to
Some European policymakers contend the Biden
address Russian cyber capabilities and human rights
Administration expects support for its initiatives—such as
abuses also may be of increasing congressional interest.
waiving intellectual property rights on COVID-19
China. Many Members of Congress have expressed
vaccines—without sufficient consultation, echoing
concern about China’s growing strategic interest and
traditional European complaints about U.S. dominance of
financial investments in Europe, especially with respect
the transatlantic relationship. Other Europeans are skeptical
to fifth generation (5G) network security and other
about whether the United States will be a credible global
critical infrastructure. Congress may examine how
leader and reliable partner in the long term and argue that
Chinese activities in Europe could affect transatlantic
Europe must be better prepared to address future challenges
relations, the extent to which European views on China
on its own. The EU has put new emphasis on enhancing
may be shifting due to strategic concerns or human
defense cooperation and concluding trade agreements with
rights issues, and possibilities for U.S.-European policy
other countries and regions, including Canada, Japan, and
coordination toward China.
Latin America. These and other efforts to position the EU
as a key international player (especially in areas such as
Kristin Archick, Specialist in European Affairs
data protection and climate change) are likely to remain EU
imperatives for the foreseeable future.
IF11094
https://crsreports.congress.gov
U.S.-European Relations in the 117th Congress
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https://crsreports.congress.gov | IF11094 · VERSION 14 · UPDATED