The multilateral, rule-based trading system underpinned by the WTO has been undermined by the unilateral imposition of U.S. tariffs on nearly all its major trading partners. Notably, the reciprocal tariffs announced by President Donald Trump on April 2, 2025 ranged from a baseline of 10% to as high as 50%—intended, in his view, to counter the disadvantages the U.S. faced under the existing system. More consequential than the rising tariffs, however, has been the abandonment of the foundational principle of non-discrimination among WTO members, accompanied by heightened trade policy uncertainty.
The ensuing bilateral negotiations during the 90-day pause in the implementation of the reciprocal tariffs were thrown into uncertainty after the U.S. Court of International Trade ruled—in May 2025 that the President had exceeded his authority under the International Economic Emergency Power Act of 1977 (IEEPA) in imposing such tariffs. The Trump administration appealed the decision at the Federal Circuit Court of Appeals and the case is expected to eventually reach the Supreme Court.
On July 31, the White House announced a decision further modifying the reciprocal tariff rates to somewhat lower than the original schedule but still ranging from 10% to 41% across different groups of countries. In parallel, sections 201 and 301 of the Trade Act of 1974 and section 232 of the Trade Expansion Act of 1962 also remain in effect. As of August 7, 2025, the average tariff rate in the U.S. is estimated at 18.3% the highest since 1934. For comparison, the average effective tariff rate at the beginning of 2025 was 2.4%.
Other countries have responded to U.S. measures by seeking negotiations with American officials, adopting approaches that vary from threats of retaliation to accommodation, depending on the bilateral balance of power vis-à-vis the U.S. By the end of the 90-day pause, eleven countries including the UK, Vietnam, the EU and Japan had reached preliminary trade deals with Washington—tentatively agreeing to lower rates than the maximums announced on April 2 but still higher than pre-tariff levels. Meanwhile, China and the U.S. agreed on a framework to guide future negotiations and implementation—talks that have since been extended several times.
Essentially, global trade has bifurcated into two distinct regimes. Trade with the U.S. which in 2023 accounted for 10.22% of world exports and 13.16% of world imports is increasingly subject to high tariffs and other barriers, shaped by unilateral U.S. actions and subsequent bilateral negotiations. By contrast, trade among other countries is likely to continue under largely unchanged pre-2025 tariff structures. To mitigate the impact of U.S. measures, many states have sought to strengthen trade and investment ties with one another. In this context, plurilateral and regional arrangements emerge as logical alternatives to the fraying multilateral system. While they offer opportunities to cushion the shock of U.S. protectionism, their effectiveness will depend on specific circumstances. Ultimately, the extent to which such arrangements are implemented will shape the patterns of trade diversion and trade creation during and after the tariff war.
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