Bank for International Settlements

Li Ruogu

English

Research Papers in Economics

China’s monetary and fiscal policy 
Li Ruogu 
In the past few years, the Chinese government has been pursuing an active fiscal policy to finance key 
construction projects by issuing government debt. Meanwhile, sound monetary policy has been 
implemented in coordination with the fiscal policy. With the coordination of the two policies, the trend 
of deflation has been contained, economic restructuring accelerated and economic growth further 
promoted.  
China’s GDP exceeded RMB 10 trillion in 2002 - a historic breakthrough. In recent years, reform of the 
fiscal revenue system has resulted in the steady growth of government revenue. In 2001, it amounted 
to RMB 1.6 trillion, 5.6 times that in 1990. The proportion of government revenue to GDP increased 
from 11% in 1994 - during the early stage of reform - to 17% in 2001. Significant progress has also 
been made in reforming the management of government expenditure. 
Despite the above achievements, there remain challenges facing China’s economic development, 
which are mainly reflected in the slowdown of government revenue since the beginning of 2002, the 
relatively high proportion of non-performing loans in the financial sector, weaker demand in rural areas 
and persistent employment pressure. In addition, uncertainties over the global economic outlook have 
had an impact on China’s exports and economic growth. To resolve these problems, the Chinese 
government will continue to boost domestic demand through proactive fiscal policy and sound 
monetary policy and further speed up economic restructuring and improve the quality and efficiency of 
economic growth. Major developments in recent fiscal and monetary policies are as follows. 
Monetary policy 
Since the beginning of 2002, the People’s Bank of China (PBC) has been pursuing sound monetary 
policy while promoting policy efficiency. The indirect policy instruments and mechanism have been 
improved. During the year to September 2002, China’s broad money (M2) and narrow money (M1) 
increased by 16.5% and 15.9% respectively. China’s base money has increased steadily and financial 
institutions’ positions remain adequate. At the end of September 2002, the central bank’s base money 
stood at RMB 3.97 trillion, representing an annual growth rate of 11.1%, an acceleration of 
3.4 percentage points from a year earlier. The average excess reserve ratio of the financial institutions 
was 4.9%, representing an adequate position and high liquidity. The loans granted by China’s financial 
institutions have also grown rapidly, with improvements in lending structure and quality. On a 
comparable basis, renminbi loans by all financial institutions (including foreign institutions) increased 
by 14.2%, accelerating by 2.6 percentage points from end-2001 and registering the highest growth 
since March 2001.  
In the light of the current situation at home and abroad, the PBC will: 
•   use monetary policy instruments in a flexible manner to adjust money supply appropriately 
and maintain reasonable growth in credit aggregates; 
•   promote the reform of the interest rate mechanism, and bring interest rates into full play in 
adjustment of the demand and supply of funds, as well as in the optimisation of resource 
allocation; 
•   improve the incentives applying to lending and corporate governance of commercial banks;  
•   and improve the RMB exchange rate formation system under the precondition of preserving 
the stability of the RMB exchange rate. 
BIS Papers No 20  107
 108  BIS Papers No 20
 
Fiscal policy 
In the light of the weak global recovery in early 2002, the Chinese government continued to pursue a 
proactive fiscal policy to boost domestic demand. In the first three quarters, fiscal revenue increased 
by 10.9% and expenditure by 17.6%, which is under the budget limits. Owing to the slowing revenue 
and increasing expenditure, there is little room for further fiscal deficit reduction.  
The slowing revenue is caused by the following factors: 
•   customs tariffs were reduced from 15.3% to 12% in line with China’s WTO commitment; 
•   the impact of lowering the securities stamp tax rate became increasingly evident in 2002; 
•   the banking and insurance business tax was further lowered by 1 percentage point in 2002. 
The increase in expenditures is caused by the following factors: 
•   continued investment in projects funded by government bonds, western region development 
and technical innovation; 
•   more resources directed to the social safety net; 
•   wage increases for civil servants; 
•   increased investment in agriculture, science and education. 
Therefore, the budget deficit in 2002 will remain at the level of 3.3% of GDP. 
While paying close attention to the explicit risks posed by the increase in the fiscal deficit and public 
debt, the Chinese government is also aware of the implicit fiscal liabilities arising from non-performing 
loans in the banking sector, the restructuring of state-owned enterprises, and the underfunded pension 
system. Efforts will be made to address the medium-term fiscal risks by implementing a medium-term 
budgetary framework and promoting various reforms, including the overhaul of the financial system, 
the state-owned enterprises and the social safety net. We firmly believe that China’s medium-term 
fiscal sustainability is strongly underpinned by sustained economic growth and a steady increase in 
revenue as well as the people’s confidence in the government. 
Coordination between monetary policy and fiscal policy 
Monetary and fiscal policy must be well coordinated. This is particularly relevant to the bond market, 
especially the government bond market, since it has become one of the most important channels for 
the central bank to adjust the money supply. Currently, with base money standing at RMB 3 trillion, 
and outstanding government debts at only RMB 2 trillion, the volume of bonds is insufficient to satisfy 
the operational needs of the central bank’s monetary policy. Outstanding debts, consisting of long- 
and medium-term debts and almost no short-term ones, will also affect the efficiency of the central 
bank’s monetary operations. Furthermore, the products in the bond market lack diversity. Under these 
circumstances, it will be hard for the central bank when conducting open market operations to take into 
consideration the interests of all the parties involved. Therefore, coordination and communication 
between the central bank and the Ministry of Finance are necessary in formulating and implementing 
macroeconomic policies. 

Fiscal issues and central banking in emerging economies

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Fiscal issues and central banking in emerging economies

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Research Papers in Economics