Is China broke?
It seems like a silly question, right? China's  foreign-exchange reserves stood at $2.4 trillion at the end of 2009.  Yes, China announced that its proposed annual budget for 2010 would  produce a record deficit, but the deficit is just $154 billion, or 2.8%  of China's gross domestic product. In contrast, the Congressional  Budget Office projects the U.S. budget deficit for fiscal 2010 at  $1.3 trillion. That's equal to 9.2% of GDP.But remember the  theme of my  column earlier this week: All governments lie about their finances.  At worst, as in Greece and the United States, the lies are bold and  transparent. Everybody knows the emperor has no clothes, but no one want  to say so. At best, as in Canada and China, the lies are more subtle --  more like a magician's misdirection than a viking raider's ax. Look at  these great numbers, the lie goes, but don't look at those up my sleeve.
There's  a good argument to be made that if you look at 
all the  numbers, instead of just the ones the budget magicians want you to see,  China is indeed broke.
More debt than meets the eyeWant to  see how that could be?
If you look only at the current position of  China's national government, the country is in great shape. Not only is  the current budget deficit at that tiny 2.8% of GDP, but the International  Monetary Fund projects the country's accumulated gross debt at just  22% of 2010 GDP. U.S gross debt, by comparison, is projected at 94% of  GDP in 2010. The lowest gross-debt-to-GDP figure for any of the Group  of Seven developed economies is Canada's 79%.
But  China has a history of taking debt off its books and burying it, which  should prompt us to poke and prod its numbers. If we go back to the last  time China cooked the national books big time, during the 
Asian  currency crisis of 1997, we can get an idea of where its debt might  be hidden now.
The currency crisis started in 1997 with the collapse  of the Thai baht  -- and then, like dominoes, the currencies of Indonesia, South Korea,  Malaysia and the Philippines collapsed. 
In each case, the country  had built up an export-led economy financed by foreign debt. When the  hot money that had been flowing in instead flowed out, that sent  currencies, stock markets and economies into a nose dive.
China  escaped the first stage of the crisis because the country's tightly  controlled currency and stock markets, and its economy, had kept out hot  money from overseas. China had built its export-led economy on domestic  bank loans instead. The majority of bank loans, then as now, went to  state-owned companies -- about 70% of the total, the Congressional  Research Service estimated in a 1999 examination of the period.
Those loans were  all that kept the doors open at many of China's biggest state-owned  companies. In its review, the Congressional Research Service estimated  that about 75% of China's 100,000 largest state-owned companies lost  money and needed bank loans to continue operating.
That became a  problem when, in the aftermath of the currency crisis, China's exports  fell. That sent revenue plunging at state-owned companies that were  already losing money. Suddenly, China's banks were sitting on billions  and billions of debts that anybody who'd taken Bookkeeping 1 in high  school could tell were never going to be paid. This was especially a  problem for China's biggest banks, all of which had ambitions to raise  more capital -- and their international profile -- by going public in  Hong Kong and New York. But no bank could go public with this much bad  debt on its books.
What to do? Why not bury the bad debt?
The  Beijing government created special-purpose asset management companies  for the four largest state-owned banks, the Industrial  and Commercial Bank of China (IDCBY,  news,  msgs),  the Agricultural Bank of China, the Bank of China (BACHY,  news,  msgs)  and China Construction Bank (CICHY,  news,  msgs).  These asset management companies -- China Cinda, China  Huarong, China Orient and China Great  Wall -- would ultimately wind up buying $287 billion in bad  loans from state-owned banks. The majority of those purchases were at  book value.
So how did the asset management companies pay for the  purchase of that $287 billion in bad loans? They certainly didn't pay  cash. Instead, they issued bonds to the banks in exchange for the bad  loans. The bonds, of course, were backed by the promise that the asset  management companies would gradually sell off or collect on the bad  loans in time to redeem the bonds. And in the meantime, they'd pay the  banks interest on those bonds.
Neat, huh? In one swell foop, the  state-owned banks got $287 billion in bad loans off their books and  turned deadbeat loans that would never pay off into streams of income  from these bonds. To read more on this neat bit of financial  engineering, check out this research  paper (.pdf file).
Of course, that still left the little issue  of where the asset management companies were going to get the  approximately $30 billion in annual interest they had promised to pay  the state-owned banks. There was also the small matter of how they were  going to pay off these bonds when they came due in 10 years, especially  since the cash recovery rate on these bad loans would run at just 20.3%  in the first five years.
Fast-forward financing But who really cared? The Beijing  government and the state-owned banks had kicked the problem 10 years  down the road. (A favorite tactic of politicians, Republicans, Democrats  and Communists alike, is to punt, so that today's problem becomes  somebody else's problem in the future.) The bonds issued by the asset  management companies didn't have an explicit government guarantee, but  everybody assumed that at some future date the government would either  pay up or punt again.
The 10-year punt of 1999 came to earth in 2009,  and, lo and behold, there was more magic.
In some cases -- China  Huarong, for example -- the asset management companies simply declared  that they'd done disposing of bad debts, that profits were soaring and  that they were seeking strategic partners in preparation for a public  offering.
In others cases, the magic was more complex. In October  2009, for example, China Cinda said it had secured government approval  for a restructuring plan that would create a company to dispose of the  $30 billion in bad loans still on Cinda's books. The company said it  would then look for strategic partners in preparation for a public  offering.
Who  in their right minds would be a strategic partner and investor in one  of these asset management companies? Well, how about one of the original  state-owned banks, China Construction Bank, that Cinda had bought the  bad loans from in the first place. "The hardest thing," China  Construction Bank Chairman 
Guo  Shuqing said in 
an Oct.  17, 2009, interview, "is evaluation."
Really? When the government  runs the books, does all the accounting and decides what assets to send  where, I think evaluation would be very easy. Any wonder, then, that  today's huge run-up in loans -- and bad loans -- by China's banks is  making some critics nervous?
The bigger problem, though, isn't so  much China's big banks but the country's local governments.
Thinking  globally, hiding (debt) locally 
By now, everyone who has a nickel  in China, or a dime itching to get into China, knows that the country's  banks went on a lending spree in 2009. On top of official government  stimulus spending of $585 billion, banks, encouraged by the government,  doubled their lending in 2009 to $1.4 trillion from the previous year. 
(Please  remember when judging these figures that China's economy was an  estimated $4.8 trillion in GDP in 2009, according to the CIA  World Factbook. Estimated U.S. GDP was about three times larger, at  $14.3 trillion. So China's 2009 bank lending of $1.4 trillion would be  equal to lending of $4.2 trillion in the United States, and China's $585  billion government stimulus package would equal a $1.7 trillion U.S.  package, more than twice the $787 billion size of the U.S.  stimulus package of February 2009.)
China's banks hit the  ground running even harder in 2010, lending out an additional $309  billion in January and February. If the banks had continued at that  rate, they would have passed the official lending ceiling of $1.1  trillion by August. (See my  Jan. 14 column for more on the lending boom and its results.)
So  China's banking regulators, spooked by the increase in bank lending,  tightened the reins. For 2010, they set a lending target 20% lower than  2009 lending levels. They raised reserve requirements so banks would  have less capital to lend. And they told banks to hit the capital  markets to raise an estimated $90 billion through 2011. (See this  blog post for more.)
It's not clear that those steps will be  enough to balance the huge number of bad loans that China's banks made  during the lending boom. But China's regulators have clearly learned a  lot about how to address a bad loan problem in the banking system since  the 1997 currency crisis.
But as our own Federal  Reserve has so amply demonstrated over the past decade, regulators  tend to gear up to fight the last war. That leaves them vulnerable to  the next crisis precisely to the degree by which it differs from the  last one.
China's new debt problem is the thousands of investment  companies set up by local governments to borrow money from banks and  then lend it to local companies. 
By law, China's local  governments can't borrow directly. But the incentives for local  governments to set up investment companies were huge. 
By making  loans to local companies, local governments could produce thousands of  jobs and drive up the value of local enterprises. And by funding  commercial and residential construction, they could drive up the price  of land. Those results were important to local officials who often  profited personally, but they were also essential to the survival of  local governments. By law, those units also aren't allowed to raise  their own taxes for local expenditures. To meet local demands -- and to  fulfill the directives issued by Beijing -- local governments are  dependent on frequently inadequate revenue transfers from Beijing and  what they can collect from such transactions as local real-estate sales.
So  how much did these investment companies borrow and then lend?
Local-government  investment companies had a total of $1.7 trillion in outstanding debt  at the end of 2009, estimates Victor Shih, an economist at Northwestern  University and the author of "Factions  and Finance in China." That's equal to about 35% of China's GDP in  2009.
In addition, banks have agreed to an additional $1.9  trillion in credit lines for local investment companies that the  companies haven't yet drawn down, Shih says.
Together the debt  plus the credit lines come to $3.8 trillion. That's roughly equal to 75%  of China's GDP.
None of this, Shih points out, is included in the  IMF calculation of China's gross-debt-to-GDP figure of 22%. If it were,  the number would be closer to 100%.
Savings aplenty, but for  whom? 
Exactly how important is this number? 
It depends on how  many of those loans at local investment companies will go bad. Shih  estimates that about 25% of current outstanding loans -- totaling $439  billion -- will go bad. (For comparison, remember that in the aftermath  of the 1997 currency crisis, the newly established asset management  companies swallowed $287 billion in bad loans.)
It also depends on  how much of China's huge reserves and huge base of personal savings are  available to offset the debt. So far, I've been talking about gross  debt. But China, like Japan, has a huge domestic pool of savings it can  use to buy debt. Economists point out that Japan has carried what looks  like a crippling gross-debt-to-GDP ratio for years -- 188% in 2007, 197%  in 2008, 219% (estimated) in 2009, and 227% (projected) in 2010 --  without disaster, because the country funds its debt internally from  savings.
China, the argument goes, could easily do the same, so  what's the problem?
A looming retirement crisis
The problem for both China and Japan is that it's not clear exactly  how much of their huge pools of domestic savings are actually available  in the long run to buy debt. Japan has a woefully underfunded retirement  system, and it's by no means clear how the population of the world's  most rapidly aging country is going to pay for retirement.
China  has, for all intents and purposes, no public retirement system. As a  result of its one-child policy, the country has also begun to age  quickly, and by 2030 its population will be as old as that of the United  States.
In the U.S., the national accounts may lie about the  effect of the problem by putting Social Security and Medicare off-budget  on the argument that, since these programs have their own dedicated  revenue streams, they don't count as part of the national debt. But that  lie aside, because the benefits of these programs are defined, it is  possible to put a dollar figure on the government's future liabilities  in this area (with all the uncertainty that comes with forecasting  inflation, of course).
China isn't hiding any future liability for  pensions or retiree health care off the books. The government hasn't  promised future payments. In an accounting sense, then, there is no  future liability that ought to be on the nation's books.
But that  doesn't mean China won't have to consume some portion of its accumulated  savings to pay for its post-65 population in 2030. The country, either  through the government or through private citizens, will have to cover  the costs of old age, however it defines that cost. And any savings it  will use to pay for those costs really aren't available now to pay  current debts.
I think the Chinese leadership is profoundly aware  of the need today to not waste money that the country will need  tomorrow. That's one reason Beijing has taken steps recently to rein in  local investment companies. On March 8, the Ministry of Finance  announced plans to nullify all guarantees by local governments for loans  taken out by their investment company vehicles. And the national  government plans to sell $29 billion in bonds for local governments this  year, giving those governments an alternative to setting up local  investment companies.
But the big job -- the reform of China's tax  system so that local governments don't have to rely on real-estate and  stock-market bubbles for funding -- didn't make it on the to-do list  announced by the National People's Congress this week and last. And I  don't think it's likely to with Communist Party leaders jockeying for  position to replace President Hu Jintao  and Premier Wen  Jiabao in 2012. (For more on the effect of politics on economics in  China, see this  blog post.)
By the time China's leadership team has sorted  itself out in 2013, China's finances will certainly look different.  There's little chance they'll look better.