It's not the forward because NDFs are usually traded against currencies which are not freely convertible ... CNY for example.For the forward price argument to work, you need to be sure that you can exchange the two currencies in the future. Hence there is conversion risk. As a first approximation you can model it as "default": ie, country collapses => currency collapses => the CNY leg is worthless.Try a few of those:
http://ideas.repec.org/a/bis/bisqtr/040 ... tmletc.The more interesting question, btw, is why cross-currency swaps between deliverable currencies trade at a basis (JPY/USD and EUR/USD). This has to do with the funding requirement of the marketparticipants.