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China’s Dilemma
Any renminbi reform is likely to be limited...
...and US hopes of a large revaluation against the dollar are
unfounded.
Small steps, not giant leaps, will remain the Chinese leadership’s
preferred approach
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Reforms are certainly on the way, but the 1. RMB has been stable since early 1990s
6 6
This short paper reviews the possible currency
regime options open to China, and highlights their 4 4
implications both for China itself and for other 2 2
economies. It’s worth noting at the outset that
0 0
any decision made by the Chinese carries
57 61 65 69 73 77 81 85 89 93 97 01 05
economic risk but that the decision will ultimately
be based not only on economic factors but on Source: Thomson Financial Datastream
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20 May 2005
2. Money supply growth slowing despite rising FX reserves would become cheaper and cheaper as Chinese
% Yr % Yr nominal wages rose relative to US nominal
25 25 wages).
20 20 4 Second, rather than introducing flexibility into
15 15 either the nominal or the real exchange rate,
China could use fiscal levers to change the
10 10
relative pricing structure of exports: higher
5 5 taxes or the withdrawal of subsidies would
99 00 01 02 03 04 05 work in much the same way as an appreciation
M1 M2
of the nominal exchange rate but would be
Source: Thomson Financial Datastream directly controlled by the Chinese
administration. This approach would have
There is also huge uncertainty about the immediate effects but, at the same time, has
renminbi’s fair value. Most calculations - which two key disadvantages. Any change in tax
point to the need for renminbi appreciation - are arrangements might be a tacit admission that
based on trade flows alone. Yet, were the capital the exchange rate was, indeed, undervalued.
account to be fully liberalised, the weak domestic And manipulating fiscal policy, in itself, cannot
banking system could lead to a significant really be regarded as a market-led reform
depreciation of the renminbi. In 2004, for unless there is a general reduction in tax
example, the IMF was forced to conclude that it distortions.
was difficult to tell where the renminbi would end
up were it to be floated (see “China’s Integration 4 Third, China might rebalance its capital
into the World Economy: prospects and account position, placing constraints on capital
challenges”.) It is, therefore, difficult to come up inflows yet, at the same time, encouraging
with a convincing assessment of where the more capital outflows. Current regulations
renminbi should be if there were to be a shift in require exporters and foreign investors to
the parity. surrender at least 70% of their foreign currency
earnings and investment to clearing banks,
One of three possible reforms might be needed to while banks have to sell most of their foreign
continue fixed currency policy against the dollar. currency receipts on the foreign exchange
4 First, China would need to find another market. Yet the demand for foreign currency
mechanism to secure appreciation of the real (except imports) remains depressed due to the
exchange rate over the medium term (the real rigid control over overseas investment, the
exchange rate, in its simplest form, takes into foreign currency holdings of corporations
account movements in both the nominal (including banks) and purchases of foreign
exchange rate and relative inflation rates). The currency by individuals. Rebalancing the
most obvious thing to do would be to announce capital account would reduce the need for
publicly that China’s inflation rate will be continuous intervention to prevent renminbi
higher over the medium term than the US appreciation.
inflation rate, implying a continuous terms of Implications: A fixed renminbi, with reform,
trade improvement for Chinese consumers (in would be easy for China to absorb but would do
their eyes, US goods, priced in renminbi, nothing to allay US protectionist pressures.
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20 May 2005
Whether the US would proceed with import tariffs dollar as a result of the Smithsonian agreement in
is, of course, another matter altogether, but this December 1971, itself a response to President
option would certainly increase political tension, Nixon’s decision to impose import tariffs on other
even if the economic attractions for China seem Bretton Woods members in August of that year.
relatively high. Moreover, were the dollar to The appreciation, though, proved to be a
weaken further against other currrencies, the speculator’s dream – and a policymaker’s
renminbi’s own competitive position would nightmare. The adjustment was a clear
improve, perhaps increasing trade tensions with compromise between those countries that wanted
other parts of the world. no change and the Americans who wanted a much
more substantial move. More moves were
Option 2: Allow a small expected and, as a result, speculators began to
revaluation of the order of take advantage of a system that was no longer
completely fixed but, instead, unpredictably
3-6% against the dollar
adjustable. By 1973, the system had completely
This is the event implied by pricing on non- collapsed.
deliverable forwards, which anticipate a 6% rise
in the renminbi against the dollar over the next Implications: In current circumstances, it is
twelve months. It could take the form of either a difficult to believe that there would be any serious
one-off revaluation or a widening of the band to benefit to either the Chinese or to the Americans.
3%-6% from 0.03% currently. A move of this The move would be no more than cosmetic,
scale might contain some political symbolism but, designed to buy time, but could have the
economically, it would be, at best, largely unfortunate consequence of creating even more
irrelevant and, at worst, seriously destabilising. speculative pressures than exist today. Small
Note that China accounts for around 10% of all adjustments generally don’t work when there is
US trade so a 6% renminbi appreciation would, on great deal of speculative pressure. In Indonesia in
its own, imply a decline in the dollar’s trade- 1997/98, for example, the authorities initially
weighted exchange rate of a mere 0.6%. Even if attempted to slow the pace of the currency’s
all other Asian countries were to follow suit – depreciation by widening the intervention band
and, given Japan’s economic weakness, this may from 8% to 12% but speculative pressure
be an extreme assumption – the dollar would only intensified and the exchange rate immediately fell
fall in trade-weighted terms by around 2½%. to its new lower boundary. The currency changed
Moves of this scale will have no significant to a float in a matter of weeks. Similarly, in
impact on external imbalances. In particular, the Mexico in December 19994 the initial 15%
US current account deficit would continue to devaluation did little to curb speculative selling
widen. Protectionist pressures might be put on and the currency was floated two days later. It
hold for a while but would likely return at some seems unlikely that a revaluation of 3%–6%
point over the next couple of years. would quell the current speculative pressure on
the renminbi.
Perhaps the bigger issue is whether a move of this
size would mark the end of any adjustment. The
breakdown of the Bretton Woods exchange rate
system in the early-1970s was initially associated
with a small realignment of currencies against the
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not have a large amount of direct trade but with Implications: A currency basket would provide a
which it competes? Should the basket make more economically rounded and relevant target
allowances for commodities priced in dollars, or for the Chinese authorities to aim at. However, it
for the sources of capital flows? And what of the would introduce uncertainty into all bilateral
rapid change in China’s trade shares from one currency arrangements whereas at least there is
year to the next? currently certainty with regard to the dollar. Such
a regime would presumably only satisfy the US
Table 3 lists China’s major trading partners based
authorities as long as the dollar is perpetually
on total trade shares. If one assumes that any shift
falling; if the euro and/or yen weakened in value
to a currency basket in China is not accompanied
this would obviously imply a renminbi
by a regime change in other Asian exchange rates
depreciation vis-à-vis the US dollar.
currently pegged or managed against the US
dollar, these weights would basically imply that
the US dollar would have about a 55% weight in Option 5: A crawling peg
the currency basket, the euro 20% and the yen A crawling peg allows the government or central
15%. bank to adjust the value of the exchange rate peg
periodically, typically based on past inflation
3. China’s main trading partners: share of total main partner
trade (2004) differentials vis-à-vis major trading partners. In
Country/region Share (numbers add to 100) countries where this regime has been used in the
EU 21.5 past (e.g. Israel, Poland and Hungary) it has
US 17.2
Japan 17.0 typically been to engineer a gradual depreciation
Hong Kong 11.5 of the exchange rate.
Korea 9.1
Taiwan 8.0
4. A crawling peg appreciating by 6% per annum
Singapore 2.7
Malaysia 2.7
Russia 2.2 8.5 8.5
Australia 2.1
Thailand 1.8
Renminbi/US$
Renminbi/US$
7.0 7.0
Like the crawling peg (see below), a currency
basket has been used by some countries as part of 6.5 6.5
a transition from a peg to a floating regime. From t-2 t-1 t t+1 t+2 t+3
1973 to 1985 Singapore pegged the Singapore Source: Thomson Financial Datastream
dollar against a fixed and undisclosed trade-
weighted basket of currencies. Capital controls In the case of China this would presumably take
were fully abolished in 1978 and since 1985 the the form of allowing the renminbi to appreciate
currency has been allowed to float. But it is against the dollar at a pre-announced rate (see
monitored by the Monetary Authority of chart 4 for an illustrative example).
Singapore against a currency basket (known to be
A crawling peg has often been used in countries
based on exports, imports and third country
as part of the transition from a fixed peg to a
competitiveness) with the aim of maintaining a
floating regime and to that extent would probably
low and stable domestic inflation rate.
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20 May 2005
be more likely to appease the Americans than just peg. Would it end the speculation pressure?
a one-off 3-6% revaluation. Not only would it be Probably not. Obviously much would depend on
a commitment to a more medium-term adjustment the rate at which the crawling peg moved but
of the exchange rate, rather than just a one-off assuming it is a fairly modest annual appreciation,
revaluation, it would probably also be viewed as many of the arguments set out in “Option 2: Allow
the start of a shift to much greater exchange rate a small revaluation of the order of 3-6% against
flexibility. the dollar” apply here also. Unless the US
welcomed the change as the appropriate stepping
5. A peg within symmetric crawling bands
stone to a complete liberalisation of the Chinese
8.5 8.5 foreign exchange market, speculation might
Renminbi/US$
7.5 7.5
appreciation.
7.0 7.0
Option 6: A managed float
6.5 6.5
A managed float would have some similarities
6.0 6.0
with both currency basket and crawling peg
t-2 t-1 t t+1 t+2 t+3
Pegged rate 2% pa 4% pa arrangements. There would be no pre-announced
Source: Thomson Financial Datastream
trading ranges, nor pre-announced targets for
levels of the exchange rate in a year or two’s time.
A variation on the crawling peg regime would be Nor would there have to be an announced
a pegged exchange rate within crawling bands. currency basket target. Markets, though, would
Bands could be either symmetric around a be able to observe the performance of a managed
crawling central peg (which strengthens at a pre- float over time and learn something about the
announced rate) or widen gradually within authorities’ reaction function. After a while, it
asymmetric upper and lower bands allowing for would be possible for markets to “second-guess”
different degrees of appreciation (in which case how the authorities would react to different
there would probably not be a pre-announced shocks. This “learning process” would, over time,
central rate). imply that markets would look upon a managed
float in a similar – although slightly less certain –
6. Crawling peg within asymmetric bands
way to either a currency basket or crawling peg.
8.5 8.5 The main advantage would be the absence of any
formal target for speculators to attack. The
Renminbi/US$
8.0 8.0
disadvantage, at least at this stage, might be the
Renminbi/US$
7.5 7.5
lack of a transparent monetary target in the
7.0 7.0
transition to a more market-based financial
6.5 6.5 system, fostering uncertainty along the way.
6.0 6.0
Implications: A managed float has proved popular
t-2 t-1 t t+1 t+2 t+3
with a number of Asian countries – India, Japan
Current rate 2% pa 8% pa
and Taiwan spring to mind – but it might be a step
Source: Thomson Financial Datastream
too far for China given limited domestic reforms.
Implications: A crawling peg basically imposes
A managed float might be the eventual outcome
the same constraints on monetary policy as a fixed
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20 May 2005
after years of reform but we suspect that currency undervalued”. Others disagree. The Institute for
basket or crawling peg arrangements would be International Economics in Washington used two
more credible short-term stepping stones. different approaches to argue that the renminbi is
15-30% undervalued, but admitted that these
Option 7: A freely-floating calculations took no account of the likely capital
exchange rate outflow that might be associated with
liberalisation of the capital account.
Following the Asian and Russian crises of the
late-1990s a new consensus emerged that either Implications: The surge in capital inflows that
“firmly fixed” or “fully floating” exchange rates would be associated with such an appreciation
were the only workable options as pegged could cause serious disruptions to China’s
exchange rates of the adjustable sort were no financial system and real economy, though the
longer viable because of their vulnerability to Chinese authorities could impose credit controls
speculative attacks. So, to that extent, a free float on banks to prevent a lending surge. The
would be the obvious alternative to the current implications of the initial appreciation would be
regime. However a free float would require an an exaggerated version of those described under
alternative credible domestic monetary “Option 3: Allow a large appreciation of around
arrangement such as an inflation target or money 20% against the dollar”. Such a move would
supply target which clearly does not yet exist in result in a rise in US treasury yields, particularly
China. Moreover, given the limited degree of if associated with a switch within the rest of the
domestic financial market reform, the credibility Asian region towards free floats or pegs other
of any such domestic nominal target would be in than the dollar. If the move reflected in part the
serious doubt: the link between interest rates and US dollar starting to lose its reserve currency
money supply is poor, primarily because status it could also trigger a switch by commodity
monetary policy is still conducted through producers to price their commodities in euros
quantitative restrictions on credit expansion rather rather than dollars and lead to a generally higher
than price. risk premium on all US assets.
A free float would also have to be associated with And while the initial impact of a free float could
full capital account liberalisation. Alan Greenspan be negative for China, a subsequent reversal of
has pointed out on several occasions that the capital flows could be equally disruptive, leaving
existence of capital controls means no one really this option as the most risky and least likely for
knows what would happen to the RMB in the the Chinese authorities to consider.
event of a freely floating Chinese exchange rate.
However, it seems plausible under current market Option 8: Asian currency unit
conditions that the renminbi would appreciate
A much longer term option, which would
sharply, overshooting – at least temporarily –
probably only happen after much of the region has
most measures of fair value. Fair value for the
shifted to more flexible exchange rate regimes,
renminbi is itself a moot point with estimates
would be the re-pegging to either a common
varying widely. An IMF report (Article IV
regional currency basket or a synthetic new
Consultation with the People’s Republic of China)
currency (Asian Currency Unit). This would have
published in November 2003 found "no clear
the advantage of reducing concerns about
evidence that the currency is substantially
competitive devaluations and avoid the current
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20 May 2005
situation whereby other Asian economies, were to be a shift in the regime, the shift would
including Japan, use China’s lack of currency more likely be one of mechanism rather than
flexibility to justify their own currency magnitude. Given the huge uncertainties about
intervention. It also makes sense given the the renminbi’s fair value against the dollar and
increased importance of intra-regional trade. other currencies, a one-off revaluation doesn’t
However, there would also be political difficulties look likely. Instead, any change is more likely to
in its implementation, particularly if it were to focus on band widening, a crawling peg, a
involve the formation of some kind of Asian currency basket target or some combination of all
central bank. three. (It is worth noting that Chile used all of
these at various stages in the 1980s and 1990s to
Implications: Still a long way off and a lot would
achieve both exchange rate appreciation and
have to change politically to make it happen.
depreciation.) Changes of this kind would
Would present challenge to the dollar and the euro
certainly introduce greater flexibility into China’s
as a reserve currency.
foreign exchange market but, on their own, would
provide no guarantee of any sizeable change in
Conclusions China’s competitive position vis-à-vis the United
Conditions for a change in currency regime are States.
certainly more helpful than they were a year ago.
As a result, external imbalances would be only
The balance of payments position is strong – an
modestly affected by any changes in Chinese
auspicious backdrop – and there have been a
exchange rate arrangements. As we have
number of changes that have improved the
consistently argued, for any meaningful reduction
institutional structure of the domestic foreign
in the US current account deficit something has to
exchange market:
change with regard to relative demand growth in
4 Eliminating regulations that stifle trading the US and elsewhere in the world. Any long-term
activity, allowing exporters to retain more solution to the current account deficit would have
foreign exchange earnings. to involve a sustained period of US fiscal
consolidation and a commitment to greater
4 Allowing more flexibility in the cash
structural reform in the eurozone. Greater
management of foreign companies operating in
currency flexibility in Asia may help modestly but
China.
would have to be accompanied by a policy-shift
4 Encouraging companies to make long-term towards domestic-demand-boosting policies and a
investments in foreign markets. willingness suddenly to run massively-reduced
current account surpluses if not deficits. In the
4 Permitting local residents to buy foreign
meantime, protectionist pressures seem unlikely
currency for both foreign education and
to die down.
holidays.
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