The government this year has announced the budget
with a triumphant air. There is little doubt that the indicators for the
state of finance have shown a marked improvement. The exchange rate has
been stabilized, the debt-servicing burden has been brought under control,
and the fiscal deficit has been reduced to a level that gives comfort
to the IMF. Whatever the role of external factors, the government deserves
full credit for these achievements. However, it is important to realize
that financial stability may be a necessary but is not a sufficient condition
for either sustainable growth or poverty alleviation. In this article
we will examine the budgetary initiatives in the context of what the government
itself now admits is a challenge of the future: High GDP growth and poverty
reduction.
Let us start by identifying two crucial economic relationships
that may help in understanding the level and type of growth required to
reduce poverty. These are: (1) The level of GDP growth is determined by
the investment rate while (2) the impact of GDP growth on poverty reduction
is determined by the distribution of national income.
Amidst the indicators of success in the financial
sphere, it should be a sobering thought that investment as a percentage
of GDP has remained at about 15.5 percent last year. This is far below
the 25 percent level that is required to push GDP growth above the 7 percent
level, so crucial for poverty reduction. It is also significantly below
the investment rate of 16.8 percent achieved during the Zia ul Haq period
(1978-87) and the 18 percent achieved during the early democratic period
after Zia (1988-93). With investment stagnating at such a low level, even
the relatively low 5.1 percent GDP growth may not be sustainable. The
observed increase in the GDP growth rate from the earlier 3.4 percent
to 5.1 percent last year is essentially due to a sharp increase in agricultural
growth (4.5 percent) associated with a good harvest and better utilization
of existing capacity in industry. Therefore the critical economic factor
that will determine Pakistan's economic destiny and the welfare of its
people will be the ability to substantially increase investment and hence
GDP growth.
It is now well established that the higher the degree
of income inequality in a country the higher is the level of GDP growth
required to reduce poverty. Given the existing high inequality in Pakistan,
a GDP growth rate of at least 7 per cent on a sustained basis is required
to make a significant dent into poverty. If the GDP growth rate is less
than 7 percent and if inequality increases, then poverty can be expected
to increase. This is in fact what has happened over the last few years
in Pakistan.
The question is, what has the budget done this year
to address the urgent need of sharply increasing investment and GDP growth.
The government claims that there has been an unprecedented increase in
its development expenditure (from 120 billion Rupees last year to 160
billion this year). Yet the fact is that the level of development expenditure
as a percentage of GDP is still 4.1 percent, which is far below the historical
level of 7 percent and significantly lower than what is required to stimulate
economic growth. It is a case of too little rather late in the day. Therefore
it can be argued that the budget this year is not growth oriented but
still contractionery in nature because the government is continuing to
implement the IMF mantra of a further reduction in the budget deficit.
Of course, even when adequate resources are devoted to stimulate economic
growth the government must face the imperative of improving the institutional
efficiency of the public sector so that increased development expenditure
can actually lead to increased development.
When the government is constrained in terms of the
scale of public sector investment, it is clearly important for the private
sector investment to rise sharply if the level of GDP growth required
for poverty reduction is to be achieved. Here four institutional factors
constrain private sector growth, which the government is beginning to
address but has so far made little progress on the ground. These are:
(1) Establishment of law and order for the protection of life and property
of citizens. The establishment of internal peace in Pakistan is to some
extent related with establishing peace on the international border with
India. This is why the initiative by President Musharraf earlier and more
recently by Prime Minister Jamali and his able Foreign Minister Kasuri,
to start peace talks with India, is an essential element in the process
of Pakistan's economic revival. (2) Developing infrastructure such as
roads, railways, ports and communications would establish a conducive
framework for private sector investment. While the budget has focused
on this economic imperative the resources allocated for this endeavour
are woefully inadequate. (3) High electricity tariffs are adversely affecting
the feasibility of new investment projects in industry and the international
competitiveness of existing industrial units. The problem with WAPDA is
not only the high cost of electricity generation but also the poor quality
of transmission. High voltage fluctuations and periodic breakdowns play
havoc with industrial units that use sensitive electronic equipment in
production. Therefore the planned privatization of electricity transmission
as well as rapid progress in cheaper hydro-electric power production must
be achieved. (4) Development of high quality professionals as well as
technicians is essential to enable industry to invest in productivity
enhancing new technology. While the government's budget for education
this year (at all levels) has substantially increased from last year to
reach a level of Rs.7.6 billion it is still about 0.9 percent of total
expenditure and 4.75 percent of development expenditure. To improve the
quality and coverage of education and to reach the scale of education
expenditure of South East Asian countries the expenditure on education
should be 10 percent of total government expenditure, which is over ten
times the current budgetary allocation. Here again budgetary allocations
bear no relationship with the scale of the problem.
Let us now consider whether the budget is aligned
with the government's undoubtedly commendable policy of poverty reduction
through such measures as food support programme and the provision of micro
finance. According to the budget document the government is seeking to
reach 1.2 million households through its food subsidy programme. There
are two problems here: (1) The level of subsidy is too low (Rs.2,400 per
household per year) to enable the beneficiary households to reach even
a minimum level of consumption for all household members (average household
size is about seven). This comes to about Rs.11 per poor person per month,
which is quite inadequate to meet a person's minimum food requirements.
(2) The number of households that this budgetary provision attempts to
reach is only 1.2 million compared to about 8 million households in Pakistan
who are going hungry.
The government has taken commendable initiatives in supporting the Pakistan
Poverty Alleviation Fund established earlier and in setting up the Khushali
Bank. The former institution provides micro finance to NGOs for on lending
to the poor while the latter is attempting to provide micro finance directly
to poor borrowers. While the PPAF has provided loans to 82,805 beneficiaries
the Khushali Bank has provided loans to 75,000 poor borrowers. This comes
to a total of about 158,000 beneficiaries from both institutions. In a
situation where 46 million people are in need of micro finance the coverage
of both these institutions together bears no relationship with the scale
of the problem. My research for the National Human Development Report
shows that only 35 percent of the poor population is borrowing money at
all and of these more than 80 percent of loans borrowed are from friends
and relatives. NGOs as a whole in Pakistan are providing only 1 percent
of the loans borrowed by the poor in the urban areas and 0.8 percent in
the rural areas. Clearly therefore the level of funds made available for
micro finance does not address the scale of the problem.
The strategic objectives of the budget (stated in the budget document)
of accelerating growth and poverty reduction are laudable. However, it
appears from our analysis that the actual budgetary allocations are out
of sync with the stated objectives. Pakistan's economy has come a long
way over the last three years for which its economic managers can take
due credit. Yet, as the current budget indicates, and the growth performance
last year suggests, Pakistan continues to be faced with financial constraints
of the government and structural problems in the real economy. (These
problems have been identified and analyzed in my earlier articles in these
columns). It is these problems that need to be addressed in the years
ahead, if poverty is to be reduced and sustainable high GDP growth achieved.
|