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The Minister is also required, in terms of the Act, to explain any departure
from the stated fiscal objectives and present strategies which he would
adopt to return to those objectives. However, in practice, the statements
issued by Ministers of Finance had been eulogies made about themselves
and the success of their economic policies. Though this was the game plan
played by Ministers of Finance neither the Parliament nor civil society
organisations took the Government to the task on this count. Hence, the
rosy budgetary numbers presented in Budgets were always missed, with no
concern about their disastrous impact on good governance or the credibility
of the Government.
Missing all the budget numbers for 2015
The final outcome of the interim budget presented to Parliament in January
2015 is a case in point, though the observations made are valid for all the
previous budgets. The interim budget had a revenue target of Rs. 1,535
billion or 13.6% of GDP. The provisional numbers say that the Government
raised only Rs. 1478 billion or 13.1%.
Similarly, the Governments consumption expenditure, also known as
recurrent expenditure, had been budgeted at Rs. 1552 billion or 13.7% of
GDP. But the provisional data show that the consumption expenditure had
overshot to Rs. 1648 billion or 14.6%.
The rosy budget had estimated a small deficit in the revenue account
amounting only to Rs. 47 billion or 0.4% of GDP. But the actual deficit had
amounted to Rs. 180 billion or 1.6%. This was evident in the overall budget
deficit too. According to the Budget, the overall deficit was to be restricted
to Rs. 490 billion or 4.4% of GDP. But, at
the end of the year, it had shot up to Rs.
675 billion or 6.6%. Accordingly, all the
interim budget numbers had been
missed except those relating to the
Governments capital expenditure which
had better performed by a small margin.
Budgets should really be evaluated
ex post
With these types of outcomes relating to
Government budgets, it is misleading to
evaluate them on the basis of mere
budgetary estimates. A meaningful
evaluation should be made only at the
end of the year when actual numbers are
available. But, that would be a postmortem serving only as a fault-finding
earning over the threshold limit of Rs. 2.4 million. Thus, Budget 2016 has
made both the indirect taxes and the direct taxes regressive which EPS had
sought to avoid.
Similarly, the budget deficit which the EPS is planning to reduce to 3.5% of
GDP by 2020 has been raised to 6% in Budget 2016.
Another deviation has been the funding of the overall budget deficit
through new borrowings amounting to Rs. 1,050 billion. This measure would
add to the existing level of public debt which the Government plans to
reduce over the medium term. Clearly, as far as the overall budgetary
discipline is concerned, Budget 2016 has moved in the opposite direction.
Once a budget goes out of control, it would be difficult to revert to the
correct path without causing social and political tensions among the
population. Hence, it is of utmost importance to lay the foundation for
eventual budgetary discipline right at the outset thereby getting space for
making a gradual movement toward the final goal.
Emphasis on reforms
Barring these deviations, the overall budgetary policy has been in line with
the EPS. It has emphasised the need for undertaking the necessary
economic reforms not only to nurture but also to foster private sector
economic activities and ensure their positive role in the entire economic
process.
Reforms are implemented particularly with reference to the state-owned
enterprises and international trade. Says the Budget 2016: With the
reforms, we need to improve local competitiveness, international trade and
investments as well as skills and productivity of our people, while being
conscious about the developments in the global economy. At the same
time, we must foster a knowledge based Social Market Economy built on
social justice principles.
Why another state university?
Thus, the thrust of the reforms has been to create an environment for the
private sector to operate freely and without impeding barriers. For that, the
economy should be freed. However, some of the policy reforms and policies
are to increase the size of the state sector and create more barriers for the
private sector to operate.
Take, for example, the proposal to establish another state university by the
name of Mahapola University to pay tribute to the late Lalith Athulathmudali
who created the pathbreaking Mahapola Scholarship Scheme.
For this purpose, the Budget has proposed to allocate a sum of Rs. 3,000
million initially. The establishment of new universities by the state should
not be done in an ad hoc manner but in terms of a national policy of
promoting higher education in the country.
The current challenge of the countrys higher education system is not the
establishment of new universities, but the consolidation of the existing
universities and upgrading their teaching and research qualities. If the
Government is desirous of honouring the late Lalith Athulathmudali, the
best course of action would have been to create a Chair in his name in a
law faculty of an existing university or establishing a new School of Law
named after him.
Leave the establishment of new banks to the private sector
The proposal to set up an Exim Bank with state participation to cater to the
international trading sector is another misconceived venture though it is
going to be a public private partnership.
The Government has already burnt its fingers in the banking sector by
getting the public funds to buy private banks and establishing two state
banks on similar lines earlier. Instead of exiting the Governments stake in
leading private banks it is continuing with the same bad policy which has
frightened the private sector.
In the other example, it set up two state banks called the National
Enterprise Bank or NEB to promote enterprises and Lanka Puthra Bank or
LPB to fund infrastructural projects. Both these banks became bankrupt
with undue political interferences which would have been the sole purpose
of setting up them. NEB had mounting loan losses and could not be
continued as a viable business.
LPB lent a huge amount to Mihin Air which the bankrupt airline could not
repay. The Treasury stealthily took over the losses of LPB and forced it to
absorb NEB but it was a marriage of two sick partners. The Budget 2016
has proposed to amalgamate it with the Regional Development Bank or
RDB. This would amount to making even the presently well-performing RDB
sick. The Budget has found fault with the prevailing banking system for not
supplying adequate credit for the micro, small and medium enterprise,
known as MSME sector.
But, RDB was specifically created for this purpose and it was doing an
impressive job on that count, while maintaining the required level of
efficiency and solvency. With the proposed dilution of its functions, it would
face a serious capacity problem to move into new areas. Hence,
establishing more and more state banks would simply add more burdens to
future budgets in the form of having to recapitalise them when they run
into problems. In this background, the government should have allowed the
industry to establish the Exim Bank if it so desires to do so with its own
private capital infusion and run it as a commercial venture.
Replace exchange control with exchange management
On the positive side, the Budget 2016 has proposed to liberalise foreign
exchange by repealing the draconian Exchange Control Act and enact in its
place a new business friendly Exchange Management Act.
Exchange Control was introduced to Ceylon during the war times to prevent
the countrys foreign reserves falling into the hands of the enemies,
namely, the Germans and the Japanese. It was meant to be a temporary
measure to be removed after the war. However, the independent Ceylon
made it a permanent law making exchange control offences criminal
activities. This gave opportunities for successive governments to use the
provisions of the Act to persecute their political enemies. Hence, it is now
time to decriminalise exchange control and make exchange management a
market friendly activity. Those who are opposed to the measure should
realise that in the neighbouring Maldives, there is no exchange control.
The Budget 2016 is aligned to EPS only in spirit but not in action. The
mistake made at the beginning will have disastrous effects on the
attainment of the goals enshrined in EPS.
(W.A. Wijewardena, a former Deputy Governor of the Central Bank
of Sri Lanka, can be reached at waw1949@gmail.com)
Posted by Thavam