TECHNOLOGY, REGULATION, AND THE DIVERGENT TRAJECTORIES OF RETAIL AND CROSS-BORDER CENTRAL BANK DIGITAL CURRENCY

Main Article Content

Hasta Dwi Pradana

Abstract

Background. Central bank digital currency (CBDC) sits where fast-moving cryptographic and ledger technology meets fast-moving regulation, yet the two are usually studied separately, and retail and cross-border uses are usually treated as one object. Between 2024 and 2026 major jurisdictions made sharply different regulatory choices.


Research Purpose. This review examines how advanced cryptographic solutions and hybrid blockchain architectures interact with evolving regulatory frameworks to shape economic outcomes and user adoption, and how that interaction differs between retail and cross-border implementations.


Research Method. We conduct a critical review. A Scopus search on 8 October 2026 (1,418 records, 1,045 retained) maps the field, and a purposive selection of peer-reviewed studies and official publications is synthesised around four research questions.


Findings. Technology and regulation terms co-occur at about the level expected by chance, and evidence on cryptographic feasibility and on adoption comes largely from separate literatures. Hybrid, two-tier architectures dominate, and the tension between privacy and anti-money laundering is increasingly handled through cryptographic design. Retail adoption is weak in every live system reviewed, while wholesale cross-border arrangements show the clearest technological value but are limited by governance. Regulatory choices since 2024 now shape outcomes more than technical feasibility does.


Conclusion. Technology and regulation co-evolve, and retail and cross-border CBDC face different binding constraints. We offer a co-evolution framework with four falsifiable propositions and argue that CBDC should be studied together with regulated stablecoins and tokenised deposits.


Keywords: central bank digital currency, privacy-enhancing technologies, distributed ledger technology, cross-border payments, financial regulation.

Article Details

How to Cite
Pradana, H. D. (2026). TECHNOLOGY, REGULATION, AND THE DIVERGENT TRAJECTORIES OF RETAIL AND CROSS-BORDER CENTRAL BANK DIGITAL CURRENCY. DIVERSITY Logic Journal Multidisciplinary, 4(3), 196–218. https://doi.org/10.61543/div.v4i3.207
Section
Articles

References

Bech, M., & Garratt, R. (2017). Central bank cryptocurrencies. BIS Quarterly Review, September, 55–70. https://www.bis.org/publ/qtrpdf/r_qt1709f.htm

Committee on Payments and Market Infrastructures. (2018). Central bank digital currencies. Bank for International Settlements. https://www.bis.org/cpmi/publ/d174.htm

Boar, C., & Wehrli, A. (2021). Ready, steady, go? Results of the third BIS survey on central bank digital currency (BIS Papers No. 114). Bank for International Settlements. https://www.bis.org/publ/bppdf/bispap114.htm

Kosse, A., & Mattei, I. (2023). Making headway: Results of the 2022 BIS survey on central bank digital currencies and crypto (BIS Papers No. 136). Bank for International Settlements. https://www.bis.org/publ/bppdf/bispap136.htm

Illes, A., Kosse, A., & Wierts, P. (2025). Advancing in tandem: Results of the 2024 BIS survey on central bank digital currencies and crypto (BIS Papers No. 159). Bank for International Settlements. https://www.bis.org/publ/bppdf/bispap159.htm

Atlantic Council. (2026). Central bank digital currency tracker. Retrieved October 26, 2026, from https://www.atlanticcouncil.org/cbdctracker/

Noll, F. (2024). Observations from the retail CBDCs of the Caribbean (Payments System Research Briefing). Federal Reserve Bank of Kansas City. https://www.kansascityfed.org/research/payments-system-research-briefings/observations-from-the-retail-cbdcs-of-the-caribbean/

Ree, J. (2023). Nigeria’s eNaira, one year after (IMF Working Paper No. 2023/104). International Monetary Fund. https://doi.org/10.5089/9798400241642.001

People’s Bank of China. (2021). Progress of research & development of e-CNY in China. https://www.pbc.gov.cn/en/3688110/3688172/4157443/2025080817510171018/2021072014364791207.pdf

Allen, S., ?apkun, S., Eyal, I., Fanti, G., Ford, B. A., Grimmelmann, J., Juels, A., Kostiainen, K., Meiklejohn, S., Miller, A., Prasad, E., Wüst, K., & Zhang, F. (2020). Design choices for central bank digital currency: Policy and technical considerations (NBER Working Paper No. 27634). National Bureau of Economic Research. https://doi.org/10.3386/w27634

Auer, R., & Böhme, R. (2020). The technology of retail central bank digital currency. BIS Quarterly Review, March, 85–100. https://www.bis.org/publ/qtrpdf/r_qt2003j.htm

Bank for International Settlements. (2023). Blueprint for the future monetary system: Improving the old, enabling the new. In Annual Economic Report 2023 (Chapter III). https://www.bis.org/publ/arpdf/ar2023e3.htm

Auer, R., Frost, J., Gambacorta, L., Monnet, C., Rice, T., & Shin, H. S. (2022). Central bank digital currencies: Motives, economic implications, and the research frontier. Annual Review of Economics, 14, 697–721. https://doi.org/10.1146/annurev-economics-051420-020324

Horváth, G. (2022). Monetary sovereignty and central bank digital currency. Public Finance Quarterly, 67(4), 539–552. https://doi.org/10.35551/PFQ_2022_4_4

Executive Order No. 14178. (2025, January 23). Strengthening American leadership in digital financial technology. The White House. https://www.whitehouse.gov/presidential-actions/2025/01/strengthening-american-leadership-in-digital-financial-technology/

GENIUS Act [Guiding and Establishing National Innovation for U.S. Stablecoins Act], S. 1582, 119th Cong. (2025). https://www.congress.gov/bill/119th-congress/senate-bill/1582

European Central Bank. (2025). Preparation phase of a digital euro: Closing report. https://www.ecb.europa.eu/euro/digital_euro/progress/html/ecb.deprp202510.en.html

Chhangani, A. (2026, January 15). What to watch as China prepares its digital yuan for prime time. Atlantic Council. https://www.atlanticcouncil.org/blogs/econographics/what-to-watch-as-china-prepares-its-digital-yuan-for-prime-time/

Chorzempa, M. (2026, February 10). China gives up on state-backed digital cash: The US and Europe should take note, for different reasons. Peterson Institute for International Economics. https://www.piie.com/blogs/realtime-economics/2026/china-gives-state-backed-digital-cash-us-and-europe-should-take-note

Carapella, F., & Flemming, J. (2020). Central bank digital currency: A literature review (FEDS Notes). Board of Governors of the Federal Reserve System. https://doi.org/10.17016/2380-7172.2790

Kiff, J., Alwazir, J., Davidovic, S., Farias, A., Khan, A., Khiaonarong, T., Malaika, M., Monroe, H. K., Sugimoto, N., Tourpe, H., & Zhou, P. (2020). A survey of research on retail central bank digital currency (IMF Working Paper No. 20/104). International Monetary Fund. https://doi.org/10.5089/9781513547787.001

Dionysopoulos, L., Marra, M., & Urquhart, A. (2024). Central bank digital currencies: A critical review. International Review of Financial Analysis, 91, 103031. https://doi.org/10.1016/j.irfa.2023.103031

Ozili, P. K. (2023). Central bank digital currency research around the world: A review of literature. Journal of Money Laundering Control, 26(2), 215–226. https://doi.org/10.1108/JMLC-11-2021-0126

Bapat, D., & Sharma, S. (2026). Central bank digital currency: A literature review and future research agenda using bibliometric analysis and TCCM framework. China Accounting and Finance Review, 28(1), 1–26. https://doi.org/10.1108/CAFR-04-2025-0051

Auer, R., Haene, P., & Holden, H. (2021). Multi-CBDC arrangements and the future of cross-border payments (BIS Papers No. 115). Bank for International Settlements. https://www.bis.org/publ/bppdf/bispap115.htm

Bank for International Settlements. (2020). Central bank digital currencies: Foundational principles and core features (Report No. 1, jointly with the Bank of Canada, European Central Bank, Bank of Japan, Sveriges Riksbank, Swiss National Bank, Bank of England and Board of Governors of the Federal Reserve System). https://www.bis.org/publ/othp33.htm

Auer, R., Cornelli, G., & Frost, J. (2020). Rise of the central bank digital currencies: Drivers, approaches and technologies (BIS Working Paper No. 880). Bank for International Settlements. https://www.bis.org/publ/work880.htm

Financial Stability Board. (2020). Enhancing cross-border payments: Stage 3 roadmap. https://www.fsb.org/2020/10/enhancing-cross-border-payments-stage-3-roadmap/

Diamond, D. W., & Dybvig, P. H. (1983). Bank runs, deposit insurance, and liquidity. Journal of Political Economy, 91(3), 401–419. https://doi.org/10.1086/261155

Brunnermeier, M. K., & Niepelt, D. (2019). On the equivalence of private and public money. Journal of Monetary Economics, 106, 27–41. https://doi.org/10.1016/j.jmoneco.2019.07.004

Davis, F. D. (1989). Perceived usefulness, perceived ease of use, and user acceptance of information technology. MIS Quarterly, 13(3), 319–340. https://doi.org/10.2307/249008

Venkatesh, V., Morris, M. G., Davis, G. B., & Davis, F. D. (2003). User acceptance of information technology: Toward a unified view. MIS Quarterly, 27(3), 425–478. https://doi.org/10.2307/30036540

Tronnier, F., Harborth, D., & Hamm, P. (2022). Investigating privacy concerns and trust in the digital euro in Germany. Electronic Commerce Research and Applications, 53, 101158. https://doi.org/10.1016/j.elerap.2022.101158

Tronnier, F., & Qiu, W. (2024). How do privacy concerns impact actual adoption of central bank digital currency? An investigation using the e-CNY in China. Quantitative Finance and Economics, 8(1), 126–152. https://doi.org/10.3934/QFE.2024006

Grant, M. J., & Booth, A. (2009). A typology of reviews: An analysis of 14 review types and associated methodologies. Health Information & Libraries Journal, 26(2), 91–108. https://doi.org/10.1111/j.1471-1842.2009.00848.x

Snyder, H. (2019). Literature review as a research methodology: An overview and guidelines. Journal of Business Research, 104, 333–339. https://doi.org/10.1016/j.jbusres.2019.07.039

Gusenbauer, M., & Haddaway, N. R. (2020). Which academic search systems are suitable for systematic reviews or meta-analyses? Evaluating retrieval qualities of Google Scholar, PubMed, and 26 other resources. Research Synthesis Methods, 11(2), 181–217. https://doi.org/10.1002/jrsm.1378

Agur, I., Ari, A., & Dell’Ariccia, G. (2022). Designing central bank digital currencies. Journal of Monetary Economics, 125, 62–79. https://doi.org/10.1016/j.jmoneco.2021.05.002

Fernández-Villaverde, J., Sanches, D., Schilling, L., & Uhlig, H. (2021). Central bank digital currency: Central banking for all? Review of Economic Dynamics, 41, 225–242. https://doi.org/10.1016/j.red.2020.12.004

Keister, T., & Sanches, D. (2023). Should central banks issue digital currency? The Review of Economic Studies, 90(1), 404–431. https://doi.org/10.1093/restud/rdac017

Gupta, S., Pandey, D. K., El Ammari, A., & Sahu, G. P. (2023). Do perceived risks and benefits impact trust and willingness to adopt CBDCs? Research in International Business and Finance, 66, 101993. https://doi.org/10.1016/j.ribaf.2023.101993

Bank for International Settlements. (2023). Project Tourbillon: Exploring privacy, security and scalability for CBDCs (Final report). BIS Innovation Hub. https://www.bis.org/publ/othp80.pdf

Bank for International Settlements. (2023, June 16). Project Rosalind: Building API prototypes for retail CBDC ecosystem innovation [Press release and report]. https://www.bis.org/press/p230616.htm

Chaum, D. (1983). Blind signatures for untraceable payments. In D. Chaum, R. L. Rivest, & A. T. Sherman (Eds.), Advances in cryptology: Proceedings of Crypto 82 (pp. 199–203). Springer. https://doi.org/10.1007/978-1-4757-0602-4_18

Chaum, D., Grothoff, C., & Moser, T. (2021). How to issue a central bank digital currency (SNB Working Paper No. 3/2021). Swiss National Bank. https://doi.org/10.2139/ssrn.3965032

Auer, R., Böhme, R., Clark, J., & Demirag, D. (2023). Mapping the privacy landscape for central bank digital currencies. Communications of the ACM, 66(3), 46–53. https://doi.org/10.1145/3579316

Pocher, N., & Veneris, A. (2022). Privacy and transparency in CBDCs: A regulation-by-design AML/CFT scheme. IEEE Transactions on Network and Service Management, 19(2), 1776–1788. https://doi.org/10.1109/TNSM.2021.3136984

Baronchelli, A., Halaburda, H., & Teytelboym, A. (2022). Central bank digital currencies risk becoming a digital Leviathan. Nature Human Behaviour, 6(7), 907–909. https://doi.org/10.1038/s41562-022-01404-9

Cheng, P. (2023). Decoding the rise of central bank digital currency in China: Designs, problems, and prospects. Journal of Banking Regulation, 24(2), 156–170. https://doi.org/10.1057/s41261-022-00193-5

Xu, J. (2022). Developments and implications of central bank digital currency: The case of China e-CNY. Asian Economic Policy Review, 17(2), 235–250. https://doi.org/10.1111/aepr.12396

Bank for International Settlements. (2024, April 3). Project Agorá: Central banks and banking sector embark on major project to explore tokenisation of cross-border payments [Press release]. https://www.bis.org/press/p240403.htm

Bank for International Settlements. (2024, June 5). Project mBridge reaches minimum viable product stage and invites further international participation [Press release]. https://www.bis.org/press/p240605.htm

Bossu, W., Itatani, M., Margulis, C., Rossi, A., Weenink, H., & Yoshinaga, A. (2020). Legal aspects of central bank digital currency: Central bank and monetary law considerations (IMF Working Paper No. 20/254). International Monetary Fund. https://doi.org/10.2139/ssrn.3758088

Anti-CBDC Surveillance State Act, H.R. 1919, 119th Cong. (2025). https://www.congress.gov/bill/119th-congress/house-bill/1919

Board of Governors of the Federal Reserve System. (2022). Money and payments: The U.S. dollar in the age of digital transformation. https://www.federalreserve.gov/publications/money-and-payments-discussion-paper.htm

European Commission. (2023). Proposal for a regulation of the European Parliament and of the Council on the establishment of the digital euro (COM(2023) 369 final). https://eur-lex.europa.eu/legal-content/EN/TXT/?uri=CELEX:52023PC0369

European Parliament. (2026, July 9). Digital euro: MEPs ready to start negotiations [Press release]. https://www.europarl.europa.eu/news/en/press-room/20260708IPR46377/

Bindseil, U. (2020). Tiered CBDC and the financial system (ECB Working Paper No. 2351). European Central Bank. https://doi.org/10.2139/ssrn.3513422

Bank of England & HM Treasury. (2024). Response to the consultation paper: The digital pound. https://www.bankofengland.co.uk/paper/2024/responses-to-the-digital-pound-consultation-paper

Bank of England & HM Treasury. (2026, March 4). Progress update: Digital pound design phase. https://www.bankofengland.co.uk/the-digital-pound/progress-update-digital-pound-design-phase

Reserve Bank of India. (2025). Annual report 2024-25. https://www.rbi.org.in

Bank Indonesia. (2022, November 30). Project Garuda: Navigating the architecture of digital rupiah [White paper]. https://www.bi.go.id/en/rupiah/digital-rupiah/Documents/White_Paper_CBDC-2022.pdf

Bank Indonesia. (2024, December 13). Garuda Project proof of concept, new chapter of digital rupiah exploration (Press Release No. 26/270/DKom). https://www.bi.go.id/en/publikasi/ruang-media/news-release/Pages/sp_2627024.aspx

Andolfatto, D. (2021). Assessing the impact of central bank digital currency on private banks. The Economic Journal, 131(634), 525–540. https://doi.org/10.1093/ej/ueaa073

Chiu, J., Davoodalhosseini, S. M., Jiang, J., & Zhu, Y. (2023). Bank market power and central bank digital currency: Theory and quantitative assessment. Journal of Political Economy, 131(5), 1213–1248. https://doi.org/10.1086/722517

Solberg Söilen, K., & Benhayoun, L. (2022). Household acceptance of central bank digital currency: The role of institutional trust. International Journal of Bank Marketing, 40(1), 172–196. https://doi.org/10.1108/IJBM-04-2021-0156

Xia, H., Gao, Y., & Zhang, J. Z. (2023). Understanding the adoption context of China’s digital currency electronic payment. Financial Innovation, 9, Article 63. https://doi.org/10.1186/s40854-023-00467-5

Hamm, P., Tronnier, F., & Harborth, D. (2025). Can the digital euro succeed where Bitcoin failed? A multigroup comparison of adoption intention in digital currencies in Germany. Pacific Asia Journal of the Association for Information Systems, 17(1), Article 5. https://doi.org/10.17705/1pais.17105

Bijlsma, M., van der Cruijsen, C., Jonker, N., & Reijerink, J. (2021). What triggers consumer adoption of CBDC? (DNB Working Paper No. 709). De Nederlandsche Bank. https://doi.org/10.2139/ssrn.3836440

Sun, T., & Rizaldy, R. (2023). Some lessons from Asian e-money schemes for the adoption of central bank digital currency (IMF Working Paper No. 2023/123). International Monetary Fund. https://doi.org/10.5089/9798400245046.001

Bank for International Settlements. (2025). The next-generation monetary and financial system. In Annual Economic Report 2025 (Chapter III). https://www.bis.org/publ/arpdf/ar2025e3.htm