Borrowing in the shadows: Unpacking Singapore’s illegal loan market
KEVIN LANG, KAIWEN LEONG, HUAILU LI AND HAIBO XU |
Despite the scale and impact of illegal moneylending in middle- and high-income economies, we still know surprisingly little about how these shadow financial systems operate. Our study draws on over 11,000 loans from more than 700 unique illegal moneylenders to over 1,000 borrowers in Singapore—offering rare, systematic insight into a complex and largely hidden market.
Rather than relying on anecdotes or narrow samples, we worked closely with community insiders and former lenders to gather sensitive data and map the structure, relationships, and outcomes in this illicit financial ecosystem. What emerges is a market governed not by brute force, but by repeated interactions, informal enforcement, and extreme financial penalties.
Relational contracts over violence
Contrary to popular depictions of violent loan sharks, most lenders in our sample rarely resort to physical threats. Instead, they and their borrowers rely on relational contracts—informal, repeated dealings that sustain cooperation over time. In fact, harassment was the exception, not the norm. Late payments are common, but the typical consequence is interest compounding at extraordinarily high rates rather than direct violence.
Most borrowers—many of whom suffer from gambling addiction, substance abuse, or impulse control issues—are well aware of the risks and conditions of these loans. In fact, 96% of loans are repaid within thirty weeks, though often not on time.
How a crackdown backfired
When Singaporean authorities cracked down on illegal moneylending, the outcome wasn’t what many would expect. Instead of shrinking the market entirely, enforcement raised interest rates and reduced loan sizes. At the same time, repayment rates increased.
This suggests that removing some lenders from the market enhanced the value of remaining lender-borrower relationships. While borrowers struggled with higher costs, they still repaid—often turning to friends and family to avoid default and its social consequences.
The global picture
Interviews with former lenders across Singapore, Malaysia, and China revealed the market’s transnational nature. Large syndicates headquartered in China dominate the industry, controlling networks that extend into urban centres like Shenzhen, Kuala Lumpur, and Singapore. These syndicates provide start-up capital and a shared borrower database, enabling new lenders to earn profits within months.
The borrowers they target are consistent: individuals with limited access to legal credit and one or more behavioural vulnerabilities, especially gambling addiction. Syndicates operate at the high end of the market—avoiding rural areas where informal moneylending resembles traditional community lending—and enforce uniform practices across borders.
A policy dilemma
Cracking down on loan sharks may appear justified, but our findings suggest that such interventions can produce harmful side effects. Borrowers may face higher interest rates, more debt, and increased pressure on their social circles. From the inside, many participants don’t want the market shut down—they prefer it to the alternatives, including financial exclusion.
That said, the behaviour of borrowers often imposes costs on others. Friends and family may feel obligated to repay loans to avoid public shame or threats. The crackdown appears to have intensified these pressures, increasing reliance on informal bailouts.
Rethinking policy priorities
The illegal loan market is not just a legal problem—it’s a social and behavioural one. Any effective response should consider:
- The behavioural profile of borrowers, particularly the role of addiction and high discount rates.
- The relational dynamics of lending, which discourage violence but perpetuate high-cost debt cycles.
- The transnational nature of syndicates, which calls for coordinated regional enforcement.
- The externalities imposed on families and communities, often overlooked in enforcement-led policy.
Most importantly, we need to acknowledge that borrowers enter into these arrangements with some awareness of the risks—and often see them as preferable to the legal alternatives they can’t access.
Conclusion
Illegal lending is an enduring response to unmet financial needs. It flourishes where people face exclusion, addiction, or urgency, and where formal credit systems fail to provide accessible alternatives. Any solution must reckon with these deeper drivers.
Outlawing loan sharks alone is not enough—and may even do more harm than good.
Professor Kevin Lang (Boston University), Dr Kaiwen Leong (Griffith Asia Institute), Associate Professor Huailu Li (Fudan University) and Dr Haibo Xu (University of Nottingham Ningbo).
This article is a synopsis of the journal article: Kevin Lang, Kaiwen Leong, Huailu Li, Haibo Xu; Borrowing in an Illegal Market: Contracting with Loan Sharks. The Review of Economics and Statistics 2025; 107 (1): 269–278. doi: https://doi.org/10.1162/rest_a_01246.