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Friday, October 8, 2010

U.S.-Australia Civilian Nuclear Cooperation: Issues for Congress

Mary Beth Nikitin
Analyst in Nonproliferation

Bruce Vaughn
Specialist in Asian Affairs


Australia and the United States have cooperated in the peaceful use of nuclear energy since the mid-1950s. The framework for this cooperation is a civilian nuclear cooperation agreement as required by section 123 of the Atomic Energy Act. President Obama transmitted the proposed text of the latest renewal agreement to Congress on May 5, 2010, along with the required Nuclear Proliferation Assessment Statement (NPAS) and his determination that the agreement promotes U.S. national security. Congress has 30 days of continuous session for consultations with the Administration, followed by an additional 60 days of continuous session to review the agreement. If not opposed by a joint resolution of disapproval or other legislation, then the agreement will be considered approved at the end of this time period. Congress also has the option of adopting either a joint resolution of approval with (or without) conditions or standalone legislation that could approve or disapprove the agreement.

The United States and Australia first concluded a civilian nuclear cooperation agreement in 1957. That agreement was updated in 1979. Australia sells around 36% of its $1 billion in uranium exports to the United States. The United States is also a major processor of Australian uranium sold to other countries. Australia does not currently possess any nuclear power plants, but it operates one research reactor.



Date of Report: September 30, 2010
Number of Pages: 13
Order Number: R41312
Price: $29.95

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Thursday, October 7, 2010

China’s Sovereign Wealth Fund: Developments and Policy Implications

Michael F. Martin
Specialist in Asian Affairs

China’s ruling executive body, the State Council, established the China Investment Corporation (CIC), a sovereign wealth fund, in September 2007 to invest $200 billion of China’s then $1.4 trillion in foreign exchange reserves. As with other sovereign wealth funds worldwide, the CIC’s existence allows China to invest its reserves in a wide range of assets, including stocks, bonds, and hedge funds. After a rocky start in which it incurred losses of 2.1% on its global investments in 2008 – caused in part by aftereffects of the global financial crisis of 2007 – the CIC’s rate of return in 2009 rose to 11.7%. The State Council is reportedly considering a CIC request for an additional $200 billion out of China’s $2.5 trillion in foreign exchange reserves.

Congress and financial analysts raised concerns about the CIC after its creation, partly because it was a comparatively large sovereign wealth fund, partly because it was government-owned, and partly because it reported directly to the State Council. Some observers were apprehensive that the Chinese government would use the CIC to acquire control over strategically important natural resources, obtain access to sensitive technology, and/or disrupt international financial markets. The CIC attempted to counter these concerns by announcing that its investment strategy would conform to international standards, and sought only to maximize its “risk-adjusted financial return.” The CIC also promised to avoid politically and strategically sensitive investments.

The CIC has been the focus of discussions among China’s leadership about its economic objectives and its organizational structure. Soon after its creation, the CIC became the sole owner of Central Huijin Investment Limited (Central Huijin), an investment fund established by China’s central bank, the People’s Bank of China (PBOC), as a vehicle for injecting capital into major Chinese banks. Over the last three years, Central Huijin has provided billions of dollars to the Bank of China (BOC), the China Construction Bank (CCB), the Industrial and Commercial Bank of China (ICBC), and other financial institutions. Some analysts maintain that there is an inherent conflict between the CIC’s goal to maximize its return on investments and Central Huijin’s mission to provide capital to domestic financial institutions, and advocate their separation. While there have been reports of a possible separation, Central Huijin remains a subsidiary of the CIC.

Concerns about the CIC’s investment activities reemerged in 2009 when it greatly expanded its overseas holdings, and began acquiring stakes in energy companies, natural resource companies and alternative energy companies. According to its filings with the Security and Exchange Commission (SEC), the CIC had holdings in 82 U.S. entities as of December 31, 2009. Commentators once again questioned the true goals of the CIC’s investment strategy. The CIC maintains that its main mission is to maximize its long-term, risk-adjusted rate of return.

For Congress, the investment activities of the CIC and its subsidiary, Central Huijin, raise questions about U.S. policies on inward foreign direct investment (FDI) and the global competitiveness of U.S. financial institutions. Some question if the current controls on inward FDI via the Committee on Foreign Investment in the United States, SEC, and other agencies provide adequate protection of U.S. strategic assets and technology from investments by the CIC and other Chinese entities. Others are concerned that Central Huijin’s assistance to Chinese banks and financial institutions are part of a larger strategy to increase China’s influence in strategic markets. These commentators suggest that more should be done to protect the United States from China’s rising role in international capital markets.



Date of Report: September 23, 2010
Number of Pages: 16
Order Number: R41441
Price: $29.95

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Dianne E. Rennack
Specialist in Foreign Policy Legislation

U.S. economic sanctions imposed on North Korea are instigated by that country’s activities related to weapons proliferation, regional disruptions, anti-terrorism, and undemocratic governance. The sanctions have the following consequences for U.S.-North Korea relations: 
  • Trade is minimal and mostly limited to food, medicine, and other humanitarianrelated goods. North Korea has no advantageous trade status and is outright denied certain goods—including luxury goods—and trade financing, primarily due to its proliferation activities. North Korea is in the most restricted country group for exports, imports require a license, and using a North Korea-flagged vessel for any transaction is prohibited.
  • Foreign aid is minimal and mostly limited to refugees fleeing North Korea, broadcasting into the country, nongovernmental organization programs dedicated to democracy promotion, human rights, and governance, emergency food aid, and aid related to disabling and dismantling the country’s nuclear weapons program. By law, U.S. representatives in the international financial institutions (IFI) are required to vote against any support for North Korea due to its nuclear weapons ambitions. Human rights and environmental activities would also likely result in U.S. objections to North Korea’s participation in the IFI. 
  • Arms sales and arms transfers are fully denied. 
  • Assets are blocked for certain individuals and entities, should such assets come under U.S. jurisdiction. 
Since the outbreak of the Korean War in 1950, the United States had imposed fairly comprehensive economic, diplomatic, and political restrictions on North Korea. On June 26, 2008, however, when multilateral negotiations appeared to be making progress toward North Korea disabling and dismantling its nuclear weapons enterprise, President George W. Bush removed restrictions based on authorities in the Trading With the Enemy Act and the terrorism designation, replacing them with more circumscribed economic restrictions related to proliferation concerns. Other statute-based restrictions, however, sustain a fairly comprehensive sanctions regime on North Korea.

The U.S. sanctions in place are a result both of requirements incorporated into U.S. law by Congress and decisions made in the executive branch to exercise discretionary authorities. Though the President, in accordance with the Constitution, leads the way in conducting foreign policy, Congress holds substantial power to shape foreign policy by authorizing and funding programs, advising on appointments, and specifically defining the terms of engagement in accordance with U.S. political and strategic interests. This report presents the legislative basis for U.S. sanctions policy toward North Korea. These sanctions are a critical tenet of the larger bilateral relationship, and this report highlights Congress’s role and responsibility in determining the nature of U.S.-North Korea relations. This report focuses on U.S. law and does not address the impact or effectiveness of the sanctions; several other reports available from CRS address these matters. See Appendix A for a selected list of other CRS products relating to U.S.-North Korea relations. 
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Date of Report: September 29, 2010
Number of Pages: 30
Order Number: R41438
Price: $29.95

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Wednesday, October 6, 2010

China’s Currency: An Analysis of the Economic Issues


Wayne M. Morrison
Specialist in Asian Trade and Finance

Marc Labonte
Specialist in Macroeconomic Policy


Over the past several years, the Chinese government has maintained a policy of intervening in currency markets to limit or halt the appreciation of its currency, the renminbi (RMB) against other major currencies, especially the U.S. dollar. This policy appears to be largely intended to keep China’s export industries competitive internationally and to attract foreign direct investment (FDI), which have been major factors behind China’s rapid economic growth. Critics charge that this policy constitutes a form of currency manipulation that is intended to make Chinese exports cheaper, and imports into China more expensive, than they would be under a floating exchange system. Some claim that China’s currency policy is a major cause of the large U.S. trade imbalance with China and the loss of numerous U.S. jobs. Many Members of Congress have urged the Obama Administration to designate China as a “currency manipulator” in order to pressure it to let the RMB appreciate, and several bills have been introduced (including H.R. 2378, S. 1254, S. 1027, and S. 3134) which seek to address China’s currency policy. On September 29, 2010, the House approved an amendment in the nature of a substitute to H.R. 2378 (by a vote of 348 to 79). The bill would attempt to apply U.S. countervailing laws to certain fundamentally undervalued currencies.

From July 2005 to July 2008, the RMB was allowed to gradually appreciate against the dollar, rising by about 21% over this period. However, once the effects of the global economic crisis began to become apparent, China halted appreciation of the RMB to the dollar in an effort to limit job losses in industries dependent on trade. From July 2008 to late June 2010, China kept the exchange rate of the RMB at roughly 6.83 yuan (the base unit of the RMB) to the dollar. On June 19, 2010, the Chinese central bank stated that, based on current economic conditions, it had decided to “proceed further with reform of the RMB exchange rate regime and to enhance the RMB exchange rate flexibility.” Events following the announcement demonstrate that a flexible RMB exchange rate could move both up and down over short periods of time. By September 23, the RMB had appreciated by about 1.9% to 6.7 yuan. Many U.S. officials have criticized the slow pace of RMB’s appreciation.

Many economists have argued that RMB appreciation is an important factor in helping to rebalance the world economy. They have also urged China to implement policies to make consumer demand, rather than exports and fixed investment, the main sources of economic growth. Some see RMB appreciation as a way of boosting China’s imports, which could contribute to a faster global economic recovery. While Chinese officials acknowledge the need to rebalance the economy, they have strongly resisted international pressure to appreciate and reform the currency, calling it “protectionism.” Some attribute this policy to concerns by the Chinese government that implementing policy changes too rapidly could lead to social instability.

While the Obama Administration has pushed China to appreciate its currency, it has also encouraged it to continue purchasing U.S. Treasury securities. China is the largest foreign holder of U.S. Treasury securities, which totaled $847 billion as of July 2010. Some analysts contend that, although an appreciation of China’s currency could help boost U.S. exports to China, it could also lessen China’s need to buy U.S. Treasury securities, which could push up U.S. interest rates. It could result in higher prices of Chinese-made goods for U.S. consumers, as well as for Chinese-made inputs that U.S. firms use in their production. Many economists contend that, even if China significantly appreciated its currency, the United States would still need to increase its savings and reduce domestic demand (particularly the budget deficit), and China would have to lower its savings and increase consumption, in order to reduce trade imbalances in the long run.



Date of Report: October 1, 2010
Number of Pages: 37
Order Number: RS21625
Price: $29.95

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Document available via e-mail as a pdf file or in paper form.
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Penny Hill Press  or call us at 301-253-0881. Provide a Visa, MasterCard, American Express, or Discover card number, expiration date, and name on the card. Indicate whether you want e-mail or postal delivery. Phone orders are preferred and receive priority processing. 

Friday, October 1, 2010

China’s Currency: An Analysis of the Economic Issues


Wayne M. Morrison
Specialist in Asian Trade and Finance

Marc Labonte
Specialist in Macroeconomic Policy


Over the past several years, the Chinese government has maintained a policy of intervening in currency markets to limit or halt the appreciation of its currency, the renminbi (RMB) against other major currencies, especially the U.S. dollar. This policy appears to be largely intended to keep China’s export industries competitive internationally and to attract foreign direct investment (FDI), which have been major factors behind China’s rapid economic growth. Critics charge that this policy constitutes a form of currency manipulation that is intended to make Chinese exports cheaper, and imports into China more expensive, than they would be under a floating exchange system. Some claim that China’s currency policy is a major cause of the large U.S. trade imbalance with China and the loss of numerous U.S. jobs. Many Members of Congress have urged the Obama Administration to designate China as a “currency manipulator” in order to pressure it to let the RMB appreciate, and several bills have been introduced (including H.R. 2378, S. 1254, S. 1027, and S. 3134) which seek to address China’s currency policy. On September 22, 2010, Congressman Levin announced that the House Ways and Means Committee would consider an amendment in the nature of a substitute to H.R. 2378.

The current global economic crisis has further complicated the currency issue for both China and its trading partners. From July 2005 to July 2008, the RMB was allowed to gradually appreciate against the dollar, rising by about 21% over this period. However, once the effects of the global economic crisis began to become apparent, China halted appreciation of the RMB to the dollar in an effort to limit job losses in industries dependent on trade. From July 2008 to late June 2010, China kept the exchange rate of the RMB at roughly 6.83 yuan (the base unit of the RMB) to the dollar. On June 19, 2010, the Chinese central bank stated that, based on current economic conditions, it had decided to “proceed further with reform of the RMB exchange rate regime and to enhance the RMB exchange rate flexibility.” Events following the announcement demonstrate that a flexible RMB exchange rate could move both up and down over short periods of time. By September 23, the RMB had appreciated by about 1.9% to 6.7 yuan. Many U.S. officials have criticized the pace of RMB appreciation as being too slow.

Many economists have argued that RMB appreciation is an important factor in helping to rebalance the world economy. They have also urged China to implement policies to make consumer demand, rather than exports and fixed investment, the main sources of economic growth. Some see RMB appreciation as a way of boosting China’s imports, which could contribute to a faster global economic recovery. While Chinese officials acknowledge the need to rebalance the economy, they have strongly resisted international pressure to appreciate and reform the currency, calling it “protectionism.” Some attribute this policy to concerns by the Chinese government that implementing policy changes too rapidly could lead to social instability.

While the Obama Administration has pushed China to appreciate its currency, it has also encouraged it to continue purchasing U.S. Treasury securities. China is the largest foreign holder of U.S. Treasury securities, which totaled $847 billion as of July 2010. Some analysts contend that, although an appreciation of China’s currency could help boost U.S. exports to China, it could also lessen China’s need to buy U.S. Treasury securities, which could push up U.S. interest rates. It could result in higher prices of Chinese-made goods for U.S. consumers, as well as for Chinese-made inputs that U.S. firms use in their production. Many economists contend that, even if China significantly appreciated its currency, the United States would still need to increase its savings and reduce domestic demand (particularly the budget deficit), and China would have to lower its savings and increase consumption, in order to reduce trade imbalances in the long run.



Date of Report: September 24, 2010
Number of Pages: 37
Order Number: RS21625
Price: $29.95

Follow us on TWITTER at
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Document available via e-mail as a pdf file or in paper form.
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Penny Hill Press  or call us at 301-253-0881. Provide a Visa, MasterCard, American Express, or Discover card number, expiration date, and name on the card. Indicate whether you want e-mail or postal delivery. Phone orders are preferred and receive priority processing.