ISE30/20-21
Subject: | financial affairs, development of financial technologies, banks and monetary authorities |
What is CBDC?
The advent of CBDC
(a) | Payment markets in many places tend to be concentrated due to economies of scale and strong network effects. Retail CBDCs could promote diversity and competition in payment options, providing open payment platforms that would foster competition and innovation, which would benefit retail users;7Legend symbol denoting 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).
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(b) | Access to CBDCs may contribute to financial inclusion especially in developing countries where the population is largely unbanked, through offering value storage, payment and other simple banking services in a low-cost manner;8Legend symbol denoting 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).
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(c) | Compared with existing payment systems, CBDC provides a more resilient means of digital payment in times of crisis. For example, the need for a disaster-resilient system is a major motivation behind the advanced CBDC development in the Bahamas, a hurricane-prone country, as mobile phone coverage is much quicker to restore than bank branches and ATMs. In addition, CBDC could be set up for use in the offline mode, allowing access to payment services during power outages;
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(d) | From the regulatory oversight perspective, CBDCs might allow central banks to keep track of the precise location of every unit of the currency and thereby tackle tax evasion and financial crime. On macroeconomic management, some consider that CBDCs could be used to facilitate fiscal transfers, allowing governments to distribute money directly to individuals more quickly and safely especially in emergency situations. There have even been discussions that CBDC issuance can be an alternative means for central banks to manage money supply,9Legend symbol denoting See Davoodalhosseini, M. et al. (2020) and Bank Policy Institute (2021). though the operation is still not discussed in depth. |
(a) | enhance efficiency for cross-border payments: central banks have joined hands to explore using wholesale CBDCs to improve cross-border payments by replacing/competing with the current system involving multiple intermediaries (e.g. correspondent banks), which resulted in higher cost, limited transparency (e.g. on foreign exchange rates in transactions and status of payment), restricted operating hours and delays; and
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(b) | explore additional functionality for supporting automation and mitigating risks: for example, in their cross-border and cross-currency settlement experiment, Singapore and Canada used smart contracts (with predetermined conditions set) to synchronize all the actions making up a transaction in delivery-versus-payment10Legend symbol denoting 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). settlements with a view to reducing settlement risk by completing the exchange of payment and corresponding asset simultaneously across different silos.11Legend symbol denoting See Bank of Canada and Monetary Authority of Singapore (2019). |
Recent CBDC development/experiences on the Mainland and in overseas places
(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;
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(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;
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(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;
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(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;
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Wholesale CBDCs – Singapore
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(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
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Collaboration with private sector
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(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
Prepared by Denise CHEUNG
Research Office
Information Services Division
Legislative Council Secretariat
12 October 2021
Hong Kong
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1. | Bank for International Settlements. (undated) Multiple CBDC (mCBDC) Bridge.
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2. | Financial Secretary. (2021) My Blog – Staying Abreast with the Times and Keeping Our Mission Firmly in Mind.
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3. | Financial Services Development Council. (2021) Recent Developments on Central Bank Digital Currencies.
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4. | GovHK. (2011) Press Releases – Joint Statement on Multiple Central Bank Digital Currency (m-CBDC) Bridge Project.
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5. | Hong Kong Monetary Authority. (2021a) Press Releases – The HKMA Unveils "Fintech 2025" Strategy.
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6. | Hong Kong Monetary Authority. (2021b) Press Releases – Technical Whitepaper on Retail Central Bank Digital Currency.
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7. | NFCW. (2021a) Hong Kong to Explore Potential for Digital HK Dollar.
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8. | Our Hong Kong Foundation. (2020) HK Should Leverage CBDC to Gain Digital Finance Leadership.
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9. | South China Morning Post. (2021) Hong Kong will Explore Digital Currency, Monetary Authority Says as it Launches Fintech Plan. 8 June.
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Mainland
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10. | Deutsche Bank. (2021) Digital Yuan: What is it and How Does it Work?
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11. | Zhou, X. (2020) Understanding China's Central Bank Digital Currency.
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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。
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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。
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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。
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Bahamas
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15. | Areddy, J. (2021) Why the Bahamas Created a Digital Currency.
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16. | Central Bank of The Bahamas. (2021) Statement of Assets and Liabilities.
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17. | Ledger Insights. (2021a) Central Bank of Bahamas Makes Progress with Sand Dollar CBDC.
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18. | NFCW. (2021b) Bahamas Links Digital Currency to Bank Accounts.
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19. | Parliament of the Bahamas. (2020) Central Bank of the Bahamas Act 2020. No. 24 of 2020. Nassau, Official Gazette the Bahamas.
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Singapore
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20. | Bank of Canada and Monetary Authority of Singapore. (2019) Enabling Cross-Border High Value Transfer Using Distributed Ledger Technologies.
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21. | Monetary Authority of Singapore. (2020) Project Ubin Phase 5: Enabling Broad Ecosystem Opportunities.
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22. | Monetary Authority of Singapore. (2021) Monetary Authority of Singapore and Banque de France Break New Ground in CBDC Experimentation.
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23. | The Business Times. (2021) MAS to Work with BIS, Central Banks to Test CBDCs for International Settlements. 2 September.
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United States
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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?
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25. | Bordo, M.D. and Levin, A.T. (2017) Central Bank Digital Currency and the Future of Monetary Policy.
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26. | Wall Street Journal. (2021) Fed Prepares to Launch Review of Possible Central Bank Digital Currency. 4 October.
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27. | Waller, J. (2021) CBDC: A Solution in Search of a Problem?
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United Kingdom
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28. | Bank of England. (2020) Central Bank Digital Currency – Opportunities, Challenges and Design.
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29. | Bank of England. (2021) Central Bank Digital Currencies.
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Others
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30. | Allen, S. et al. (2020) Design Choices for Central Bank Digital Currency: Policy and Technical Considerations.
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31. | Bank of Canada et al. (2018) Cross-Border Interbank Payments and Settlements – Emerging Opportunities for Digital Transformation.
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32. | Bank for International Settlements. (2016) Glossary.
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33. | Bank for International Settlements. (2020) The Technology of Retail Central Bank Digital Currency.
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34. | Bank for International Settlements. (2021a) CBDCs: an Opportunity for the Monetary System.
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35. | Bank for International Settlements. (2021b) Central Bank Digital Currencies: Putting a Big Idea into Practice.
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36. | Bank for International Settlements. (2021c) Central Bank Digital Currency: the Quest for Minimally Invasive Technology. BIS Working Papers No. 9480.
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37. | Bank for International Settlements. (2021d) Ready, Steady, Go? – Results of the Third BIS Survey on Central Bank Digital Currency. BIS Papers No. 114.
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38. | Bank for International Settlements. (undated) BIS Innovation Hub Work on Central Bank Digital Currency (CBDC).
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39. | Bank Policy Institute. (2021) The Benefits and Costs of a Central Bank Digital Currency for Monetary Policy.
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40. | CPO Magazine. (2021) European Central Bank CBDC Survey Finds Privacy is the Number One Concern for Digital Euro. 5 May.
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41. | Daly, L. (2021) Average Credit Card Processing Fees and Costs in 2021.
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42. | Davoodalhosseini, M. et al. (2020) CBDC and Monetary Policy.
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43. | Deloitte. (2020) Are Central Bank Digital Currencies (CBDCs) the Money of Tomorrow?
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44. | Dorst, S. (2021) Digital Dollars for Online Tea: The Bahamas, Sri Lanka, and Uganda Fight the Pandemic's Disruption with Innovation.
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45. | European Central Bank. (2021) Eurosystem Launches Digital Euro Project.
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46. | Foster, K. et al. (2021) Digital Currencies and CBDC Impacts on Least Developed Countries.
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47. | Hyperledger. (2020) Case Study: The National Bank of Cambodia Boosts Financial Inclusion with Hyperledger Iroha.
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48. | International Monetary Fund. (2019) Central Bank Digital Currencies: 4 Questions and Answers.
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49. | Ledger Insights. (2021b) JP Morgan Warns CBDC could Mean Banks Lose 20-30% of Funding.
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50. | PwC. (2021) PwC CBDC Global Index.
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51. | Reserve Bank of Australia. (2019) Submission to the Senate Select Committee on Financial Technology and Regulatory Technology.
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52. | Shirai, S. (2019) Money and Central Bank Digital Currency. ADBI Working Paper Series No. 922.
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53. | Soramitsu. (2020) Kingdom of Cambodia Launches Central Bank Digital Currency, Co-Developed with Fintech Company SORAMITSU
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