How Europe and the United States Can Renew Their Alliance
On August 14, 1941, U.S. President Franklin Roosevelt and British
Prime Minister Winston Churchill secretly met aboard a ship off the
Newfoundland coast. The two leaders discussed war strategy, but more
importantly, they laid out their common vision for a postwar world in a
joint statement later known as the Atlantic Charter. The charter
articulated shared principles and cemented not only the transatlantic
alliance but also the foundation of a world order that has endured for
more than 70 years.
Today, that alliance has reached a low point. U.S. President Donald Trump has threatened to leave NATO and referred to Europe as a “foe.”
Some European officials have normalized the Trump administration’s
denigration of the alliance. In interviews with us, they spoke of a
reversion to historic norms, arguing that the United States is reverting
to its pre-1941 isolationism and that the past eight decades of
transatlantic cooperation were the exception to the rule.
But Trump is the exception. The alliance stagnated somewhat under
previous U.S. administrations, but Trump has posed an open threat on an
entirely new scale to the partnership Roosevelt and Churchill once
immortalized. The current U.S. president has antagonized European
leaders, fomented mistrust, and cast doubt on the value of the
relationship itself.
But the transatlantic partnership is not beyond resurrection. U.S.
and European leaders are already beginning to look beyond Trump and
toward new possibilities for the alliance. In her State of the Union speech
yesterday, European Commission President Ursula von der Leyen stressed
that Europeans “will always cherish the transatlantic alliance” and hope
for “a new transatlantic agenda.” Indeed, successful U.S. and European
foreign policy continues to rely on effective transatlantic cooperation.
What the alliance needs is renewal: a refreshed statement of shared
purpose and democratic values, together with new institutions dedicated
to shared action.
The United States and Europe still need each other, and the world
needs a vibrant and energetic West to sustain the global order. Although
some scholars argue that the center of economic and political power has
shifted, the balance of material resources still lies in the West, as
the United States and Europe earn nearly half of the world’s income and
engage in nearly half of its military spending. Other industrialized
democracies—such as Australia, India, Japan, and South Korea—are
integral to addressing the rise of China and confronting North Korea,
but the transatlantic alliance remains the indispensable foundation of
any liberal order capable of acting in the global interest.
Europe is the United States’ “indispensable partner of first resort,”
Vice President Joe Biden has said. In that spirit, rather than
abandoning the transatlantic alliance, U.S. and European leaders should
think creatively about its future. They should reinvigorate the
partnership with a new transatlantic agreement and council: a
twenty-first-century Atlantic Charter, equipped to handle not only
today’s but also tomorrow’s crises.
ROCK BOTTOM
During and immediately after the Cold War, the transatlantic
partnership seemed to enjoy a zenith of success. American and European
leaders coordinated their shared actions largely through NATO.
But that organization’s primacy faded after the turn of the millennium,
and the partnership itself seemed to fall victim to its own success, as
the United States and Europe paid little attention to its upkeep. In
the past two decades, NATO was the vehicle only for the 2001
intervention in Afghanistan and the 2011 intervention in Libya—but not
for any other major U.S. foreign policy action.
The transatlantic relationship suffered some strains during the
presidency of George W. Bush, but President Barack Obama strengthened
the alliance and helped make sure that both its burdens and its
leadership were equitably shared. The Obama White House recognized the
importance of the relationship, but it didn’t always make it an urgent
priority. The alliance’s achievements during Obama’s tenure, including
the Iran nuclear deal and
the Paris climate accord, were often difficult to distinguish from
global ones. The only distinctly transatlantic project—the Transatlantic
Trade and Investment Partnership, a bilateral trade agreement—failed.
But if the transatlantic alliance suffered some benign neglect under
earlier administrations, none before Trump dealt it outright hostility.
Trump evokes not admiration, respect, or even fear in Europe, only
contempt. Over the last four years, he has publicly denigrated the
European Union and called NATO “obsolete,” even as he has openly
supported antidemocratic leaders, most notably Russian President
Vladimir Putin. Charles Kupchan, the former director for European
affairs at the National Security Council, told us the current moment is
“existential” for the transatlantic alliance “largely due to Trump.”
David O’Sullivan, former EU ambassador to the United States, called
Trump’s foreign policy “upside down” and complained that the president
“treats allies as enemies and potential enemies as allies.” Trump has
walked away from shared commitments, like the Iran nuclear deal, and
scorned the EU’s handling of the global pandemic. He has driven the
alliance into a ditch.
As a result of Trump’s antagonism, some European leaders now view the
United States as another great power, like China or Russia, against
which Europe should balance
its interests. For instance, Germany was a leading supporter of the
transatlantic alliance for decades. But in 2018, German Foreign Minister
Heiko Maas released a new U.S. strategy
in a German paper. He called for a realignment in U.S.-European
relations and greater European strategic autonomy. In his view, the
United States can no longer be a trusted ally.
A REINVIGORATED ALLIANCE
For all that the United States and Europe appear to have drifted
apart, many policymakers on both continents value the transatlantic
relationship and wish to revitalize it. Former Deputy Secretary of State
John Negroponte told us that “it is very important for the next
administration to focus on Europe.” But as Wolfgang Ischinger, a former
German ambassador to the United States, noted, “This relationship will
require a lot more care and engagement than previously.”
Such efforts may require rethinking some of the institutional
structures through which the alliance works. The concerns that preoccupy
the United States today—including the rise of China, Russia’s
aggression, climate change, cyberspace, trade, technology, and public
health—don’t fit neatly under the umbrella of NATO,
nor have U.S.-EU summits adequately addressed them. When U.S. and EU
leaders meet, they tend to do so only in short duration and to emerge
with little more than nonspecific promises to work together. By
contrast, G-20 meetings, the pivot to Asia, and even the initial two
years of the reset with Russia produced concrete deliverables on matters
of pressing import.
But while Washington may not be able to resolve its most significant
foreign policy problems with European cooperation alone, it is unlikely
to address them without it. Likewise, Europe relies on American support
and security guarantees. German Chancellor Angela Merkel and French
President Emmanuel Macron have called for Europe to develop strategic autonomy.
But Europe is unlikely to be able to deter Russia or tackle terrorism
on its own anytime in the near future, and so NATO will remain central
to its security. Nor can Europe likely stabilize the Middle East and
North Africa without closely coordinating its efforts with the United
States. For these reasons among others, European leaders share a broad
consensus that the United States can remain an integral partner—as long
as they do not have to deal with Trump.
A NEW ATLANTIC CHARTER
For more than 70 years, beginning with the Atlantic Charter, the
transatlantic alliance has been the central engine of the rules-based
international order. The alliance has supported international free
trade, economic development, and human rights. The liberal order has, in
turn, greatly benefited the West: Europe is no longer wracked by wars,
although recent Russian adventurism is deeply worrying. But other parts
of the world have also prospered during this period. For instance,
economic development and free trade have lifted millions of people out
of poverty in China.
Today, the outlines of a world without this transatlantic anchor are
increasingly discernible. They suggest a United States driven by the
Trump administration’s inchoate impulses as China asserts its will and
Russia meddles in the affairs of other states and aggresses those on its
borders. A pandemic has swept the globe, but the Trump administration
has disdained to work with Europe on a global response (something Vice President Biden has called for). In short, transatlantic drift has made the United States weaker and the world more dangerous.
The transatlantic alliance
must be reinvigorated. But modern demands on the partnership outstrip
its current framework and require new structures. For this reason,
Western leaders should draw up a twenty-first-century version of the
Atlantic Charter—call it the Transatlantic Strategic Partnership
Agreement (TSPA). The Atlantic Charter laid out a vision that
established institutions such as the United Nations, NATO, and the
European Union. Likewise, the United States and Europe now need to
update their vision and establish new institutions to meet the new
moment.
Among these institutions would be a Transatlantic Council, which
would facilitate intergovernmental cooperation at head-of-state,
ministerial, and staff levels. The council would establish structured
dialogues on areas of common interest, such as particular regions or
public health. The council would further oversee summits between the
United States and Europe. These could be layered on top of NATO summits:
on the first day, U.S. and European leaders would focus on NATO’s
mission of collective defense, and on the second day, leaders from NATO
and EU member states would discuss wider transatlantic foreign policy
concerns. To head off future crises, the council could draw up joint
policies to address climate change, for example, or help assess global
trends. Under its auspices or those of the TSPA, the United States and
Europe could coordinate strategies on matters of common interest, such
as China, Russia, development, or cyberspace.
Ultimately, new institutions can help restore the collaborative ethos
that once characterized the transatlantic relationship. At one time,
the United States and Europe relied upon each other almost
instinctively. Now, they have to work to restore that muscle memory. Not
only the United States and Europe but the wider liberal order require a
renewal of the transatlantic partnership.
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