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April 11, 2025
Southeast Asia Heeds Trade Warnings
Though the tariff delay was a welcome surprise, regional states know they need to diversify trade partners.
By: Victoria Herczegh
When they were first announced, U.S. President Donald Trump’s “Liberation Day” tariffs brought panic and confusion to markets all around the world, perhaps nowhere more so than in Southeast Asia. Those hardest hit – Cambodia, Laos, Vietnam and Myanmar – have close economic and diplomatic ties with China, which itself is facing monumental tariffs, but none were spared. Though Trump has since announced a 90-day pause in tariffs to allow countries to plan and negotiate, many regional countries, including the poorer ones already reeling from the cuts to the United States Agency for International Development, are convinced that the U.S. is withdrawing from the region, and that they are increasingly left to their own devices.
It’s unclear what they’ll do in America’s absence. Beijing may seem like a more reliable partner, and indeed, closer cooperation seems to serve the interests of both sides. But there are obstacles that will prevent Southeast Asian nations from meaningfully pivoting to China in the long term.
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Though the Association of Southeast Asian Nations, which comprises most of the major economies in the region, may be one bloc, its members have different levels of exposure to the U.S., and even the blanket 10 percent tariffs planned by Trump hold risks for everyone. Even the Philippines, which is less exposed than most, is compromised. Though U.S. exports accounted for just 2.6 percent of its gross domestic product last year, some 40 percent of Philippine textile exports end up in America. But Manila at least has some room to maneuver. For one thing, its trade relationship with the U.S. is more symmetrical than those of its neighbors; U.S. imports from the Philippines were valued at $14.2 billion in 2024, up 7 percent from 2023. The Philippines can – and will – reduce tariffs on its main export products in exchange for a similar move by the United States. Moreover, the Philippines can take advantage of its membership in the Regional Comprehensive Economic Partnership, a trade agreement that removes at least 90 percent of export tariffs for member states, including ASEAN, Australia, China, Japan, South Korea and New Zealand. Additional trade within the bloc could help alleviate economic stress in certain sectors brought on by U.S. tariffs. Manila is meanwhile considering renewing negotiations for a free trade agreement with the EU, which, if completed, will also blunt potential tariff damage.
Indonesia is in slightly worse shape. It has a comparatively larger domestic consumer market, and its export-to-GDP ratio is close to 25 percent, about 9 percent of which is due to U.S. exports. The country has had an annual trade surplus with the U.S. since 2019, peaking at $18.9 billion in 2022 and falling to about $16.8 billion last year. Some sectors are about to be hit hard. Roughly one-third of the respective labor forces of Nike and Adidas, for example, are stationed in Indonesia, putting the apparel and shoe industry in peril. Indonesia’s crucial furniture industry, which exports about 50 percent of its products to the U.S., is also highly likely to suffer a downturn. Electronics and electrical equipment, its top export to the U.S. at $4.8 billion, will also feel the effects of tariffs. Accordingly, Jakarta is prioritizing dialogue with Washington in hopes of a “fair and good relationship.”
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This marks a shift from Indonesia’s previous position on the U.S. and China. The government in Jakarta seemed to be moving closer to Beijing, wanting beneficial trade deals so much that at one point it even seemed amenable to acknowledging China’s claims on Indonesian territorial waters. Now, if Indonesia wants the U.S. to consider its needs, it will likely have to distance itself somewhat from China. It will likely look to get closer to its fellow ASEAN members. In fact, it recently (and surprisingly) struck a deal with Vietnam on trade that also resolved overlapping claims on exclusive economic zones. Moreover, Indonesia could, in theory, intensify trade with other markets like Egypt, Nigeria, South Africa and Kenya that are potentially interested in buying electronics, motor vehicles and palm oil. It could also, in theory, goose trade with South America, particularly Chile, its biggest regional trade partner, sending broadcasting equipment, footwear and automotive products. The Comprehensive Economic Partnership Agreement it signed with Canada last year gives Indonesia yet another option for diversifying its exports.
Of all the countries in Southeast Asia, Cambodia is possibly in the worst position. Over the past few years, this small, poor country’s manufacturing industry grew steadily, spurred by the production and exports of textiles, apparel, footwear and furniture. Exports to the U.S. increased to nearly $10 billion from January to December 2024, up 11 percent compared to 2023, and it currently has a $12.3 billion export surplus. Cambodia has emerged as a preferred destination for Chinese manufacturers seeking to lower their production costs and, more recently, to avoid tariffs. More than half of the country’s factories are, in fact, owned by China, and of all ASEAN members it is the closest to China politically and diplomatically. It is therefore likely that the U.S. will use Cambodia to “punish” China. The country is already prone to unrest, and with 17 percent of the population still living in poverty, it cannot afford to lose any export revenue.
Unsurprisingly, Phnom Penh immediately asked Washington for relief after “Liberation Day,” and its leaders expressed a willingness to both diversify its clients and give the U.S. preferential trade treatment. And, like its neighbors, Cambodia seems poised to diversify its trade partners. For the past five years, Cambodia has expanded its reach in European markets, and there is interest on both sides to expand it further. Notably, it has grown disillusioned with the slow progress and underperformance of China-backed infrastructure projects, so it has decided to mend ties with fellow ASEAN members in the hopes of upgrading diplomatic and trade status with the likes of Vietnam and Laos. While Cambodia has some options, its ability to find new partners will be undermined by additional tariffs, should negotiations fail.
Vietnam is in a similar but more enviable situation as Cambodia. Its economic growth was driven by the manufacture and export of electronics, textiles, footwear and agricultural products, but unlike Cambodia, it has a more developed economy and a more diverse export portfolio. After the tariff announcement, the government in Hanoi established a “rapid reaction force,” requesting ministries to work on ways to effectively implement cooperation mechanisms and agreements with Washington in an effort to encourage U.S. businesses to invest in strategic fields and products where they have advantages and where the both nations have demand. So, while Vietnam is looking to strike with the U.S. first, it is likewise pursuing other options in Europe and in ASEAN.
China, meanwhile, will be affected by ASEAN's responses, but it’s hard to see any of the bigger players moving more into China’s orbit, especially if doing so compromised their stated goal of enhancing inter-ASEAN trade. The Philippines is a close U.S. ally and the least likely to align with Beijing. For Indonesia, making concessions to Washington is one thing; abandoning Beijing is something else entirely. Cambodia is already close to China, and though Vietnam has made efforts to diversify its alliances to avoid getting caught in the U.S.-China trade conflict, it is still overwhelmingly dependent on trade with China, which accounted for 26 percent of Vietnam’s trade turnover in 2024. Yet, Cambodia and Vietnam both know how constrictive a relationship with China can be, whether through Beijing’s reneging on funding or through confrontations in the South China Sea. China’s unreliability is an advantage to Washington, the on-again, off-again tariffs notwithstanding, especially since China is facing steep tariffs of its own. If it is to weather the storm, Beijing needs to achieve economic self-reliance, especially in tech, and make sure its people don’t get too restive. The bottom line is that most of these countries would rather negotiate a deal with the U.S. than cast their lot in with China.
Even so, Beijing will try to capitalize on Washington’s apparent disregard for Southeast Asia. Later this month, President Xi Jinping is embarking on a rare three-nation visit to Vietnam, Cambodia and Malaysia in hopes of appearing as a stabilizing force and strengthening trade and defense ties. (Malaysia got off lucky on Liberation Day, seeing as how the U.S. is its third largest trading partner, buying 11 percent of its exports, but then Malaysia is also set to lead ASEAN negotiations with the U.S. on tariff remediation.)
So long as China prioritizes its domestic economy over its regional economy, and so long as ASEAN nations still have a chance to persuade the Trump administration to lower its tariffs, we don’t expect a mass exodus of Southeast Asian countries from the U.S. camp into the welcoming arms of China. The likelier outcome is that Beijing will continue to have good relations with the countries it already has good relations with, and it will maintain its influence in small, weaker economies like Laos and Myanmar. Still, that ASEAN members have been forced to diversify their trade partners, to include each other, is no small thing.