diff --git a/clang/lib/Sema/SemaTemplate.cpp b/clang/lib/Sema/SemaTemplate.cpp
--- a/clang/lib/Sema/SemaTemplate.cpp
+++ b/clang/lib/Sema/SemaTemplate.cpp
@@ -7164,6 +7164,11 @@
       //   [temp.constr.order].
       SmallVector<const Expr *, 3> ParamsAC, TemplateAC;
       Params->getAssociatedConstraints(ParamsAC);
+      // C++2a[temp.arg.template]p3
+      //   [...] In this comparison, if P is unconstrained, the constraints on A
+      //   are not considered.
+      if (ParamsAC.empty())
+        return false;
       Template->getAssociatedConstraints(TemplateAC);
       bool IsParamAtLeastAsConstrained;
       if (IsAtLeastAsConstrained(Param, ParamsAC, Template, TemplateAC,
diff --git a/clang/test/CXX/temp/temp.arg/temp.arg.template/p3-2a.cpp b/clang/test/CXX/temp/temp.arg/temp.arg.template/p3-2a.cpp
--- a/clang/test/CXX/temp/temp.arg/temp.arg.template/p3-2a.cpp
+++ b/clang/test/CXX/temp/temp.arg/temp.arg.template/p3-2a.cpp
@@ -7,9 +7,9 @@
 // expected-note@-1{{similar constraint expressions not considered equivalent}}
 template<template<C> class P> struct S1 { }; // expected-note 2{{'P' declared here}}
 
-template<C> struct X { }; // expected-note{{'X' declared here}}
+template<C> struct X { };
 
-template<D> struct Y { }; // expected-note 2{{'Y' declared here}}
+template<D> struct Y { }; // expected-note{{'Y' declared here}}
 template<typename T> struct Z { };
 template<F> struct W { }; // expected-note{{'W' declared here}}
 
@@ -18,10 +18,10 @@
 S1<Z> s13;
 S1<W> s14; // expected-error{{template template argument 'W' is more constrained than template template parameter 'P'}}
 
-template<template<typename> class P> struct S2 { }; // expected-note 2{{'P' declared here}}
+template<template<typename> class P> struct S2 { };
 
-S2<X> s21; // expected-error{{template template argument 'X' is more constrained than template template parameter 'P'}}
-S2<Y> s22; // expected-error{{template template argument 'Y' is more constrained than template template parameter 'P'}}
+S2<X> s21;
+S2<Y> s22;
 S2<Z> s23;
 
 template <template <typename...> class C>