ISE30/20-21

Subject: financial affairs, development of financial technologies, banks and monetary authorities


  • Central bank digital currencies ("CBDCs") have gained traction in recent years and have been on the agenda of central banks worldwide. According to the Bank for International Settlements ("BIS"), 86% of the central banks globally are engaged in work related to the development and use of CBDC, with 14% of them already launched pilot tests. CBDC is more than application of advanced technologies that can complement physical cash; it may have profound implications by becoming a viable payment system and a tool for implementing regulatory oversight as well as fiscal and monetary policies.
  • Hong Kong has been examining the feasibility of CBDC and conducting related studies since 2017. Recently, the Financial Secretary has indicated that the Government would continue with the trial use of CBDC in cross-border trade payment and step up preparation for the use of CBDC in Hong Kong at the wholesale and retail levels (including studying the feasibility of retail digital Hong Kong Dollar, "e-HKD"), as well as conducting technical testing of digital Renminbi ("e-CNY") in Hong Kong.1Legend symbol denoting See Financial Secretary (2021) and South China Morning Post (2021).
  • This issue of Essentials provides an overview on CBDC, including its (a) features and potential benefits, (b) approaches to designing CBDCs, by reference to the Mainland and some overseas places with noticeable CBDC progress such as the Bahamas and Singapore; (c) CBDC development in Hong Kong; and (d) issues and potential challenges in developing CBDC.

What is CBDC?

The advent of CBDC

Recent CBDC development/experiences on the Mainland and in overseas places

  • Many central banks in large and small economies demonstrated keen interest in CBDC development. Yet it is observed that they are making different degrees of progress, and the level of technological advancement does not necessarily dictate their positions in the development pathway. Indeed, emerging markets and developing economies are considered more motivated generally to develop CBDCs, accounting for seven out of eight CBDC projects in advanced stages according to the latest BIS survey. On the other hand, large and developed economies such as the United States ("US") appear more hesitant in CBDC development. The US Federal Reserve is expected to publish a discussion paper soon on the benefits and costs of creating a CBDC, aiming to spur discussion over whether and how it should issue CBDC.12Legend symbol denoting See Wall Street Journal (2021) and Waller, J. (2021). In the United Kingdom ("UK"), while the Bank of England has invested considerable effort in research on CBDC, it has not yet made a decision on whether to introduce CBDC. It intends to engage widely with stakeholders on the benefits, risks and practicalities of doing so.13Legend symbol denoting See Bank of England (2021). Likewise, the European Central Bank, having announced in July 2021 the start of a 24-month investigation phase, has yet to decide on whether to develop a digital Euro.14Legend symbol denoting See European Central Bank (2021). Therefore, it appears that factors such as the perceived advantage of CBDC systems vis-à-vis the current regimes and stakeholders' interest could be more crucial determinant of progress rather than strictly on the technological know-how.
  • Among places with more advanced progress in developing CBDC, the Bahamas officially launched its retail CBDC, the Sand Dollar, in October 2020. It amended the Central Bank of The Bahamas Act 2020 to provide the central bank with the legal authority to issue the Sand Dollar and to make both notes and digital currency legal tender. The Sand Dollar became available for domestic use by all Bahamian residents upon initial launch, while integration with the commercial banking system is being completed gradually. The Mainland, another early mover on CBDC, has conducted pilot tests of e-CNY in various cities since 2019, and is expected to make the digital currency available for use by visitors to the Winter Olympics in Beijing in 2022.15Legend symbol denoting Pilot test sites include Shenzhen, Suzhou, Xiong'an, Chengdu, venues for the 2022 Beijing Winter Olympics, Shanghai, Hainan, Changsha, Xi'an, Qingdao and Dalian. So far, cumulative transactions volume and value totalled over 70 million and RMB34.5 billion (HK$41.1 billion) respectively have been recorded for all e-CNY wallets as at end June 2021. As for wholesale CBDCs, Singapore has conducted experiments on cross-border payment with other countries including Canada and France, and has published detailed reports after completing different phases of testing.
  • The salient features of CBDCs being piloted/launched on the Mainland, in the Bahamas and Singapore are highlighted below:

    Retail CBDCs – the Mainland and the Bahamas

    (a)Non-interest bearing: as an initial trial or first launch, both e-CNY and Sand Dollar pay zero interest (i.e. a feature that is seen in physical cash), which may aim to keep the design simple and to avoid undue competition with bank deposits;

    (b)Caps on CBDC transaction and balance: in the Bahamas, there are different caps on transactions and balance for different types of Sand dollar wallets. For example, the maximum transaction limit per month is B$10,000 (HK$77,700) for individuals, and B$20,000 (HK$155,400) or one-eighth of annual revenues (whichever is greater) for businesses, and there were B$130,000 (HK$1.0 million) Sand dollars in circulation in early 2021. On the Mainland, while the way e-CNY is piloted with users may differ from city to city, in its official design, a cap on transactions and balance is introduced for different types of e-CNY wallets.16Legend symbol denoting See 中國人民銀行數字人民幣研發工作組(2021年). Reportedly, the smallest-value e-CNY wallet (named "Type 4" wallet) has a maximum balance of RMB10,000 (HK$11,920), with transaction amounts capped at RMB2,000 (HK$2,380) per transaction and RMB5,000 (HK$5,960) per day.17Legend symbol denoting Information is based on 央視網(2021年). Full details on the caps for each type of e-CNY wallets appear yet officially published. It is further noted that in both places, transactions in smaller-value wallets are anonymous, since identification of the user is not required, while wallets with a higher spending limit would have to be linked to bank accounts;

    (c)Two-tier system and risk monitoring framework: both e-CNY and Sand Dollar are issued by the central bank to authorized financial institutions, which will then manage the digital currency's circulation to the public. By leaving user-facing activities to banks, the central bank can lower its burden of executing transactions and conducting user-level due diligence as banks are responsible for actually handling retail users' CBDC business as well as enforcing anti-money laundering and counter-financing of terrorism regulations and ensuring ongoing compliance.18Legend symbol denoting See Allen, S. et al. (2020). Nevertheless, the People's Bank of China ("PBoC") has also established a framework for big data analysis that could, among other things, help risk monitoring and macroprudential oversight regarding the use of e-CNY on the Mainland;

    (d)Accessibility through a physical payment card: to ensure that the CBDC does not exclude residents based on access to technology, age or abilities, both e-CNY and Sand Dollar are also available in the form of physical payment cards, in addition to access through a mobile wallet application. Meanwhile, Bahamians can convert the Sand Dollars in their accounts instantaneously into physical cash at designated cashout locations;

    Wholesale CBDCs – Singapore

    (e)Cross-border payment through a common multiple-CBDC network: Singapore and France announced in July 2021 the successful completion of an experiment on cross-border and cross-currency transactions for Singapore Dollar CBDC and Euro CBDC. The design of a common multiple CBDC network enabled the two central banks to have visibility on cross-border payments while retaining independent control over the issuance and distribution of their own CBDC; and

    Collaboration with private sector

    (f)Private sector participation to support wider usage: the private sector assumes an important role in e-CNY, with e-CNY wallets and related ecological platforms being jointly built, owned and shared by PBoC and authorized operators. Singapore also involves the industry not just in experimenting CBDC technology, but in exploring business opportunities related to CBDC as well. For example, the Monetary Authority of Singapore has made technical specifications of the CBDC prototype network publicly available in order to spur further industry development on CBDC solutions. Meanwhile, the Bahamas authorized one of the licensed payment platforms to partner with Mastercard to issue a Sand Dollar prepaid card, enabling Bahamian residents to convert their Sand Dollars in the prepaid card instantly, which can then be spent at any shops where Mastercard is accepted.

CBDC development in Hong Kong

Issues and potential challenges

Concluding remarks

  • Central banks around the globe are studying the CBDCs as they have the potential of providing advanced yet low-cost digital payment systems, the demand for which has surged amidst the current pandemic. The prospect of leveraging CBDCs to enhance the implementation of regulatory oversight as well as fiscal and monetary policy provided further impetus for monetary authorities to invest resources into thoroughly exploring CBDCs' potential. Though large economies overseas are undecided about introducing CBDCs, various other places have piloted CBDCs for retail and/or wholesale use, and the Bahamas has even launched it in a small scale with a range of use cases. For Hong Kong, authorities have started studying the feasibility of e-HKD regarding retail CBDC use. At the same time, Hong Kong is expected to play a key role in promoting e-CNY as the Mainland plans to expand its application, potentially further fortifying the city's position as the premier offshore Renminbi centre. The potential of CBDC in enhancing cross-border settlement appears strong as well, although the realization of such promise hinges upon collective action of central banks across jurisdictions.


Prepared by Denise CHEUNG
Research Office
Information Services Division
Legislative Council Secretariat
12 October 2021


Endnotes:

1.See Financial Secretary (2021) and South China Morning Post (2021).

2.In many economies, commercial banks are required to place deposits at the central bank, which form the central bank reserves. In Hong Kong, however, there is no such reserve requirement for banks. Yet there is a statutory liquidity ratio for them to meet. To facilitate interbank settlement, banks in Hong Kong maintain Hong Kong dollar settlement accounts with HKMA.

3.CBDCs are also different from stablecoins, a type of nonofficial cryptocurrencies backed by a physical currency, as stablecoins do not constitute money creation by the central bank and are therefore in effect payment systems and investment vehicles. See Bank for International Settlements (2021a).

4.The ledger can, among others, prevent users from sending the same unit of CBDC to different recipients (so-called "double spend") and help keep track of the overall stock and supply of CBDC.

5.DLT is capable of a number of functions that are potentially useful for CBDC, such as programmability and peer-to-peer payment on a decentralized platform. DLT features can potentially be adopted independently of each other. At the same time, programmability can also be deployed on a ledger created using centralized database technology. See Bank of England (2020).

6.As data updates on distributed ledgers are more time and energy consuming – each update has to be harmonized between all entities – some central banks noted after their pilot tests that DLT had inadequate performance and scalability, and that it may not have fundamental advantages over centralized databases in the case of direct CBDCs. See Bank for International Settlements (2020).

7.This could potentially lower the cost of digital payments to merchants, which reach over 3% in the case of credit cards. See Daly, L. (2021).

8.For example, Cambodia's DLT-based interbank payment platform launched in 2020 provides individuals with an e-wallet, giving them access to mobile payments and online banking free of charge. This is distinct from earlier forms of mobile money such as M-Pesa in Kenya and Ant Group (螞蟻集團) on the Mainland, which have significant contributions in financial inclusion (e.g. M-Pesa helped increase the proportion of Kenya's population with access to formal financial services from about 20% in 2007 to more than 60% over a 10-year period). However, the dominance of private sector players in these earlier systems has given rise to near monopolies, which has become a regulatory concern. See Foster, K. et al. (2021).

9.See Davoodalhosseini, M. et al. (2020) and Bank Policy Institute (2021).

10.Delivery-versus-payment refers to a securities settlement mechanism that links a securities transfer and a funds transfer in such a way as to ensure that delivery occurs if and only if the corresponding payment occurs. See Bank for International Settlements (2016) and Reserve Bank of Australia (2019).

11.See Bank of Canada and Monetary Authority of Singapore (2019).

12.See Wall Street Journal (2021) and Waller, J. (2021).

13.See Bank of England (2021).

14.See European Central Bank (2021).

15.Pilot test sites include Shenzhen, Suzhou, Xiong'an, Chengdu, venues for the 2022 Beijing Winter Olympics, Shanghai, Hainan, Changsha, Xi'an, Qingdao and Dalian. So far, cumulative transactions volume and value totalled over 70 million and RMB34.5 billion (HK$41.1 billion) respectively have been recorded for all e-CNY wallets as at end June 2021.

16.See 中國人民銀行數字人民幣研發工作組(2021年).

17.Information is based on 央視網(2021年). Full details on the caps for each type of e-CNY wallets appear yet officially published.

18.See Allen, S. et al. (2020).

19.See PwC (2021).

20.BIS Innovation Hub is an initiative of BIS aiming to foster innovation and collaboration among central banks.

21.Payment-versus-payment refers to a settlement mechanism that ensures that the final transfer of a payment in one currency occurs if and only if the final transfer of a payment in another currency or currencies takes place. See Bank for International Settlements (2016).

22.It has issued a brief on CBDC, giving an overview on the development on the Mainland and Hong Kong. See Financial Services Development Council (2021).

23.See Hong Kong Monetary Authority (2021b) and NFCW (2021a).

24.In an opinion survey conducted in the European Union region, data privacy is the top concern of their residents when being asked their views on the introduction of digital Euro. See CPO Magazine (2021).

25.An investment bank estimated that a US digital dollar would lead to a 20% – 30% drop in the funding base of commercial banks, while another investment bank estimated that a digital Euro would attract 8% of European commercial bank deposits. See Bank for International Settlements (2021c) and Ledger Insights (2021b).

26.CBDC can be operated under a single-tier system (i.e. direct CBDC), two-tier system (i.e. indirect CBDC), or a hybrid of both. This is often referred to as the "architecture" of the CBDC system. In a single-tier system, the central bank keeps a record of all individual balances and updates it with every user transaction. In a two-tier system, financial intermediaries are delegated by the central bank to handle CBDC transactions with the public, and users have a claim on the intermediaries.

27.Retail CBDC can broadly be classified as account-based or token-based. In an account-based CBDC, ownership is tied to an identity, and transactions are authorized via identification of the person. In a token-based CBDC, transactions are verified based on authenticity of the token, making it possible to maintain full anonymity. In some papers, token-based CBDC and value-based CBDC are interchangeable. It is also possible to implement hybrid systems combining features of account-based and token-based CBDCs. See Shirai, S. (2019).


References:

Hong Kong

1.Bank for International Settlements. (undated) Multiple CBDC (mCBDC) Bridge.

2.Financial Secretary. (2021) My Blog – Staying Abreast with the Times and Keeping Our Mission Firmly in Mind.

3.Financial Services Development Council. (2021) Recent Developments on Central Bank Digital Currencies.

4.GovHK. (2011) Press Releases – Joint Statement on Multiple Central Bank Digital Currency (m-CBDC) Bridge Project.

5.Hong Kong Monetary Authority. (2021a) Press Releases – The HKMA Unveils "Fintech 2025" Strategy.

6.Hong Kong Monetary Authority. (2021b) Press Releases – Technical Whitepaper on Retail Central Bank Digital Currency.

7.NFCW. (2021a) Hong Kong to Explore Potential for Digital HK Dollar.

8.Our Hong Kong Foundation. (2020) HK Should Leverage CBDC to Gain Digital Finance Leadership.

9.South China Morning Post. (2021) Hong Kong will Explore Digital Currency, Monetary Authority Says as it Launches Fintech Plan. 8 June.


Mainland

10.Deutsche Bank. (2021) Digital Yuan: What is it and How Does it Work?

11.Zhou, X. (2020) Understanding China's Central Bank Digital Currency.

12.《中國人民銀行數字人民幣研發工作組》: 中國數字人民幣的研發進展白皮書,2021年。

13.《央視網》: 第十三屆陸家嘴論壇 穆長春: 對數位人民幣錢包進行分層管理,2021年。

14.《新浪財經》: 冬奧會支付工作已進入衝刺階段 外賓無需銀行賬戶可使用數字人民幣,2021年。


Bahamas

15.Areddy, J. (2021) Why the Bahamas Created a Digital Currency.

16.Central Bank of The Bahamas. (2021) Statement of Assets and Liabilities.

17.Ledger Insights. (2021a) Central Bank of Bahamas Makes Progress with Sand Dollar CBDC.

18.NFCW. (2021b) Bahamas Links Digital Currency to Bank Accounts.

19.Parliament of the Bahamas. (2020) Central Bank of the Bahamas Act 2020. No. 24 of 2020. Nassau, Official Gazette the Bahamas.


Singapore

20.Bank of Canada and Monetary Authority of Singapore. (2019) Enabling Cross-Border High Value Transfer Using Distributed Ledger Technologies.

21.Monetary Authority of Singapore. (2020) Project Ubin Phase 5: Enabling Broad Ecosystem Opportunities.

22.Monetary Authority of Singapore. (2021) Monetary Authority of Singapore and Banque de France Break New Ground in CBDC Experimentation.

23.The Business Times. (2021) MAS to Work with BIS, Central Banks to Test CBDCs for International Settlements. 2 September.


United States

24.Board of Governors of the Federal Reserve System. (undated) What is a Central Bank Digital Currency? Is the Federal Reserve Moving Toward Adopting a Digital Dollar?

25.Bordo, M.D. and Levin, A.T. (2017) Central Bank Digital Currency and the Future of Monetary Policy.

26.Wall Street Journal. (2021) Fed Prepares to Launch Review of Possible Central Bank Digital Currency. 4 October.

27.Waller, J. (2021) CBDC: A Solution in Search of a Problem?


United Kingdom

28.Bank of England. (2020) Central Bank Digital Currency – Opportunities, Challenges and Design.

29.Bank of England. (2021) Central Bank Digital Currencies.


Others

30.Allen, S. et al. (2020) Design Choices for Central Bank Digital Currency: Policy and Technical Considerations.

31.Bank of Canada et al. (2018) Cross-Border Interbank Payments and Settlements – Emerging Opportunities for Digital Transformation.

32.Bank for International Settlements. (2016) Glossary.

33.Bank for International Settlements. (2020) The Technology of Retail Central Bank Digital Currency.

34.Bank for International Settlements. (2021a) CBDCs: an Opportunity for the Monetary System.

35.Bank for International Settlements. (2021b) Central Bank Digital Currencies: Putting a Big Idea into Practice.

36.Bank for International Settlements. (2021c) Central Bank Digital Currency: the Quest for Minimally Invasive Technology. BIS Working Papers No. 9480.

37.Bank for International Settlements. (2021d) Ready, Steady, Go? – Results of the Third BIS Survey on Central Bank Digital Currency. BIS Papers No. 114.

38.Bank for International Settlements. (undated) BIS Innovation Hub Work on Central Bank Digital Currency (CBDC).

39.Bank Policy Institute. (2021) The Benefits and Costs of a Central Bank Digital Currency for Monetary Policy.

40.CPO Magazine. (2021) European Central Bank CBDC Survey Finds Privacy is the Number One Concern for Digital Euro. 5 May.

41.Daly, L. (2021) Average Credit Card Processing Fees and Costs in 2021.

42.Davoodalhosseini, M. et al. (2020) CBDC and Monetary Policy.

43.Deloitte. (2020) Are Central Bank Digital Currencies (CBDCs) the Money of Tomorrow?

44.Dorst, S. (2021) Digital Dollars for Online Tea: The Bahamas, Sri Lanka, and Uganda Fight the Pandemic's Disruption with Innovation.

45.European Central Bank. (2021) Eurosystem Launches Digital Euro Project.

46.Foster, K. et al. (2021) Digital Currencies and CBDC Impacts on Least Developed Countries.

47.Hyperledger. (2020) Case Study: The National Bank of Cambodia Boosts Financial Inclusion with Hyperledger Iroha.

48.International Monetary Fund. (2019) Central Bank Digital Currencies: 4 Questions and Answers.

49.Ledger Insights. (2021b) JP Morgan Warns CBDC could Mean Banks Lose 20-30% of Funding.

50.PwC. (2021) PwC CBDC Global Index.

51.Reserve Bank of Australia. (2019) Submission to the Senate Select Committee on Financial Technology and Regulatory Technology.

52.Shirai, S. (2019) Money and Central Bank Digital Currency. ADBI Working Paper Series No. 922.

53.Soramitsu. (2020) Kingdom of Cambodia Launches Central Bank Digital Currency, Co-Developed with Fintech Company SORAMITSU



Essentials are compiled for Members and Committees of the Legislative Council. They are not legal or other professional advice and shall not be relied on as such. Essentials are subject to copyright owned by The Legislative Council Commission (The Commission). The Commission permits accurate reproduction of Essentials for non-commercial use in a manner not adversely affecting the Legislative Council. Please refer to the Disclaimer and Copyright Notice on the Legislative Council website at www.legco.gov.hk for details. The paper number of this issue of Essentials is ISE30/20-21.