Samoa: Selected Issues and Statistical Appendix
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International Monetary Fund
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This Selected Issues paper and Statistical Appendix reviews Samoa’s record of economic reform, its economic performance to date, and future areas of reform focus. The paper highlights that reform of the taxation system has reduced Samoa’s dependence on international trade taxes and enhanced the efficiency of the tax system. Tax reform was initiated in January 1994 with the introduction of a 10 percent value-added tax on goods and services. The paper also assesses the Samoan experience of reform implementation and remaining issues and challenges.

Abstract

This Selected Issues paper and Statistical Appendix reviews Samoa’s record of economic reform, its economic performance to date, and future areas of reform focus. The paper highlights that reform of the taxation system has reduced Samoa’s dependence on international trade taxes and enhanced the efficiency of the tax system. Tax reform was initiated in January 1994 with the introduction of a 10 percent value-added tax on goods and services. The paper also assesses the Samoan experience of reform implementation and remaining issues and challenges.

III. Financial Liberalization and Monetary Policy in Samoa, 1998–20031

A. Introduction

1. In January 1998, Samoa launched a series of reforms aimed at establishing a market-based financial system. In the five years since, this transformation has largely been achieved. The previous system of direct controls on credit and interest rates has been dismantled and monetary management is now effected through auctions of central bank securities and other market based monetary policy instruments. These reforms have been implemented without jeopardizing macroeconomic stability or undermining the financial position of the central bank, two key concerns at the start of the reform process. This paper assesses the Samoan experience of reform implementation, and remaining issues and challenges.

B. Background

2. Samoa’s financial system is highly concentrated, consisting essentially of three commercial banks and two large public nonbank financial institutions. The three commercial banks - ANZ Bank Samoa (ANZ), Westpac, and the National Bank of Samoa (NBS) - together account for roughly 40 percent of financial system assets and 55 percent of domestic credit (Table 1). ANZ and Westpac are fully foreign-owned, while the NBS is owned by private domestic investors. In addition to these banks, the Central Bank of Samoa (CBS) recently issued a fourth banking license to the Commercial Bank of Samoa, which will start operating in June 2003. The two largest nonbank financial institutions, the National Provident Fund (NPF) and the Development Bank of Samoa (DBS), also play a significant role in the financial sector in terms of both asset size and loans outstanding.2

Table 1.

Structure of Samoa’s Financial System, September 2002

(In percent of total)

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3. The exchange rate of the tala, which is pegged to a trade-weighted basket of currencies, has long served as the nominal anchor for monetary policy. The exchange rate peg is maintained against a basket of the currencies of Samoa’s five major trading partners. The CBS has discretion to adjust the rate by +/−2 percent without consulting Cabinet, and has periodically made small adjustments in the exchange rate, the last one being in November 2001 when the tala was devalued by 1½ percent in response to its appreciation against the Australian and New Zealand dollars. There has not been a major devaluation of me tala since the mid-1980s.

4. Prior to the reforms in 1998, the CBS relied on a number of direct controls to implement monetary policy. Interest rates were controlled administratively, with the CBS setting a floor on deposit rates (4.5 percent at the time of the reforms) and a ceiling on lending rates (12.0 percent). These floors and ceilings were rarely changed. The central bank also established ceilings on bank credit, and imposed a liquid asset requirement equivalent to 25 percent of bank deposits, to be held in a special statutory reserve deposit account at the CBS.

5. The system of direct controls had inhibited the development of the financial sector in Samoa. The controls on interest rates had resulted in artificially low deposit interest rates, curtailing financial saving, and rigid loan rates which had precluded risk-based credit pricing. With volatile inflation, this rigidity had induced wide swings in real deposit and loan rates, which when combined with the distortionary effects of credit rationing had constrained the level and efficiency of financial sector intermediation.

C. Process of Reform

6. The process of financial liberalization was launched in January 1998. The first steps taken, involved the abolition of the credit ceilings and the controls on interest rates. At the same time, the CBS commenced auctions of central bank securities as the primary instrument of monetary policy. These reforms were complemented by steps to liberalize the foreign exchange market. By mid-1998, banks were permitted to enter into forward foreign exchange contracts and the 1 percent levy on foreign exchange sales by banks was removed in January 1999.

7. Care was taken to ensure that the excess liquidity in the banking system prior to the reforms was unwound gradually. At the time of the reform, excess liquidity in the banking system was around 18 percent of commercial bank assets. To avoid the risk of excessive credit growth following the lifting of credit controls on the banking system, the authorities phased out the liquid asset ratio gradually over an eighteen month period, providing time for the auctions of central bank securities to take hold and mop up the excess liquidity. The liquid asset ratio was reduced by one percentage point per month between January 1998 and mid-1999. The CBS also retained a separate reserve requirement of 5 percent for regulatory purposes.

8. Steps were also taken to enable the CBS bear the cost of issuing interest bearing liabilities. The cost of issuing the securities was financed by a loan from the AsDB for an initial period running through March 2003. In late 2001, the central bank and the Treasury reached agreement on a framework to place the financing of the central bank securities on a more sustainable basis. The Treasury would finance this cost for an interim period through the end of fiscal year 2003/04. It would also strengthen the balance sheet of the central bank by forgoing any profit transfer from the central bank and would help build up the central bank’s foreign assets by committing to meet all of its debt service obligations from the Treasury’s own foreign currency deposits until 2007, at which time it would transfer its remaining foreign currency deposits, with the exception of some sinking funds, to the central bank.3

9. Auctions of CBS securities have become the principal instrument for influencing monetary conditions. The auctions take place on a fortnightly basis and are open to all Samoan resident over the age of 18. The CBS sets and announces the volume and maturity of the securities to be issued, and lets the market determine the price. Initially the auctions were limited to securities of 91-days and 182-days, however, it has since expanded the range of securities issued to cover an additional 4 maturities (14, 28, 56, and 365 days).

10. The CBS has generally used the level of excess reserves in the banking system as an operational target for determining the volume of securities to be offered in the weekly auction, although a recently developed reserve money program is starting to play an increasing role. It also uses the maturities offered in the auctions as a signaling device for the stance of monetary policy. In a tightening phase, for example, the CBS issues longer-term securities (91 to 365 days) instead of short-term securities (up to 28 days’ maturity) and vice versa. (Currently most outstanding securities have a maturity of 28 days or less.) To date, the CBS securities are held almost exclusively by commercial banks, as the rates are not attractive to the main NBFIs, and a secondary market for the securities has yet to develop.

11. The CBS has introduced additional instruments of monetary policy to supplement the primary auctions of CBS securities. In January 1998, the CBS introduced a rediscount facility and more recently, in January 2002, repurchase agreements of the securities were introduced. While these facilities in principle provide the CBS with the full range of instruments it needs to manage liquidity, in practice they have been seldom used to date.

D. Assessments and Remaining Issues

12. Although it may be too early to fully evaluate the success of Samoa’s financial liberalization, the reforms have met their initial objectives. In particular, the previous system of direct controls has been successfully dismantled and replaced by market based instruments of monetary management. The transformation was achieved without jeopardizing macroeconomic stability or jeopardizing the financial position of the central bank.

13. Market interest rates have come down gradually over the past few years, but the impact of the reforms on competition in the financial sector has been relatively modest (Figure). Spreads have remained relatively high, reflecting partly the impact of high transaction costs associated with operating in a small market. There is some evidence that spreads have started to narrow recently, which may reflect in part the beginning of greater competition in the financial sector.

A03ufig01

Samoa: Interest Rates, 1999–2002

(In percent)

Citation: IMF Staff Country Reports 2003, 196; 10.5089/9781451840698.002.A003

14. Looking forward, one of the key challenges will be to deepen the securities market, to provide greater flexibility of monetary policy. Lengthening the maturity of securities may contribute to greater interest from NBFIs and from private investors. With regards to the latter, better public education may be required to increase interest in the central bank securities. Strengthening the securities market could potentially have positive spillover effects for developing debt financing options for the private sector.

15. Steps also need to be taken to improve the lending environment to enhance financial intermediation. In particular, the combination of a poor debt servicing culture and an expensive and cumbersome process of securing loans against property and other assets is a significant impediment to financial intermediation. The system of customary land also presents major challenges to lenders wishing to secure loans against property. Strengthening the secured transactions framework, through reforming the legal framework for security interests and developing workable asset registers, and improving the utilization of customary land as collateral for bank loans are both high priorities of the government.

16. With regard to the operation of monetary policy, the choice of intermediate target is an issue. Currently, the central bank targets an inflation rate of up to 3 percent, in addition to a reserves cover of 4 months (which was reduced from 6 months in 2001). Since inflation in Samoa is quite volatile due to the large share of agricultural products in the CPI, the CBS has for operational purposes been using credit growth rather than the inflation rate as a target indicator.4 The central bank is of the view that this can cause public confusion regarding the operation of monetary policy, and is consequently considering the introduction of core inflation as a target indicator. The CBS is also considering whether to introduce a weighted average interest rate indicator as an official (benchmark) interest rate, since the outstanding stock of 91-day securities, the original benchmark instrument, is now relatively limited given the short average maturity of outstanding securities. Another option under consideration is to offer 91-day securities in each auction as a benchmark security.

Table 1.

Samoa: Gross Domestic Product by Sector at Constant 1994 Prices, 1997–2002

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Sources: Treasury Department of Samoa; and Fund staff estimates.

Financial intermediaries service charge, indirectly measured.

Table 2.

Samoa: Gross Domestic Product by Sector at Current Prices, 1997–2002

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Sources: Treasury Department of Samoa; and Fund staff estimates.

Financial intermediaries service charge, indirectly measured.

Table 3.

Samoa: Indices of Industrial Production, 1997–2002 1/

(1997=100)

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Source: Central Bank of Samoa.

The industrial index has been revised to include a more comprehensive range of products manufactured in the country. It replaces the old index which was based in 1982 and included a small range of products.

Comprises copra meal, soap, toilet tissue, tobacco, and salted beef.

Salafai Metal Industries (SMI) has replaced Samoa Iron and Steel in the authorities’ Industrial Production Survey, as a producer of roofing iron from September 1998 onward.

Table 4.

Samoa: Energy Statistics, 1997–2002

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Sources: Electric Power Corporation; and Treasury Department of Samoa.

Figures relate only to government-owned electric power schemes. Village lighting schemes and other private plants are not included.

Transmission and distribution losses, and auxiliaries (power used in electricity production).

Table 5.

Samoa: Building Permits Issued, 1997–2002

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Source: Treasury Department of Samoa.

The 1999 figure includes the renovation of the Faleolo Airport terminals (SAT 9 million) and the office complex for the Accident Compensation Board (SAT 19 million).

Table 6.

Samoa: Consumer Prices, 1997–2002

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Source: Department of Statistics.
Table 7.

Samoa: Financial Operations of the Central Government, 1997/98–2002/03 1/

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Sources: Treasury Department of Samoa; and Fund staff estimates.

Fiscal year begins on July 1.

Primarily foreign-financed development expenditure.

Includes loans and advances to public enterprises, capital subscriptions, and land purchases.

Includes revaluation of Treasury’s foreign assets.

Table 8.

Samoa: Revenue of the Central Government, 1997/98–2002/03

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Source: Treasury Department of Samoa.

Foreign exchange levy was removed in 1999.

Excludes VAGST payable by government departments.

Table 9.

Samoa: Current Expenditure Classified by Function, 1997/98–2002/03

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Source: Treasury Department of Samoa.

Residual; includes interest payments on public debt

Table 10.

Samoa: External Grants by Donors and Loan Disbursements, 1998/99–2002/03

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Source: Treasury Department of Samoa.

Includes grants from China, WHO, Canada, UNESCO, UNICEF, Germany, and France.

Includes expenditure on scholarship awards, ISPs, and consultants for which direct payment are made by donors.

Table 11.

Samoa: Public Enterprises and Statutory Authorities, 1997–2002

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Source: Treasury Department of Samoa.
Table 12.

Samoa: Structure of the Financial System, 1997–2002

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Source: Central Bank of Samoa.

Includes monetary assets of the Treasury.

Westpac assumed full control of the Pacific Commercial Bank in May 2001.

Gross credit extended to government, nonfinancial public enterprises, and the private sector, except Treasury claims on Government which are recorded net of liabilities.

Table 13.

Samoa: Monetary Survey, 1997/98–2002/03

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Source: Central Bank of Samoa.

Includes Treasury’s monetary accounts.

For quarterly data, the annual change is calculated relative to the respective quarter of the previous year.

Table 14.

Samoa: Summary Accounts of the Monetary Authorities, 1997/98–2002/03

(In millions of tala; end of period)

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Source: Central Bank of Samoa.

IMF accounts.

Table 15.

Samoa: Balance Sheet of the Commercial Banks, 1997/98–2002/03

(In millions of tala: end of period)

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Source: Central Bank of Samoa.

Excludes provisions for specific purposes.

Nonfinancial public enterprises and nonmonetary financial institutions.

Table 16.

Samoa: Credit to the Private Sector, 1997/98–2002/03

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Source: Central Bank of Samoa

Refers to total credit extended to each sector.

Table 17.

Samoa: Interest Rates, 1997/98–2001/02

(In percent per annum; end of period)

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Source: Data provided by the Samoan authorities.

Interest rates are presented as average weighted rates from January 1, 1998 onward (given the removal of interest rates ceilings on that date). Prior to January 1998, the regulated rates are presented.

Includes lending to public enterprises, private businesses, and individuals.

Table 18.

Samoa: International Liquidity, 1997/98–2002/03

(In millions of U.S dollars, end of period)

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Source: Central Bank of Samoa.

Excluding Sinking Fund.

Results from the requirement, prescribed from time to time by the Central Bank, to open a letter of credit for imports in excess of consignment values.

Adjusted for contingent import liabilities.

Table 19.

Samoa: Balance of Payments, 1997/98–2002/03

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Sources: Data provided by the Samoan authorities; and Fund staff estimates.

Excludes trade data for Yazaki Samoa Limited and imports by foreign diplomatic missions located in Samoa.

Imports in 2001/02 include exceptional capital imports (eight shipping vessels and machinery for the extension of the port) amounting to $8.6 million.

Comprises net exports of Yazaki.

Equals change in net foreign assets of commercial banks.

Equals change in net foreign assets of the monetary authorities (including valuation effects).

As a percent of exports of goods and nonfactor services. Includes debt service on government-guaranteed debt.

Table 20.

Samoa: Exports by Commodity, 1997/98–2002/03

(In thousands of tala, unless otherwise noted) 1/

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Source: Central Bank of Samoa.

Using period average exchange rates.

Also includes soft drink concentrates.

Includes sale of a used ship (7.2 million tala) in 1997/98.

Table 21.

Samoa: Destination of Exports, 1997/98–2002/03 1/

(In percent of total)

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Sources: Customs Department of Samoa; and Central Bank of Samoa.

Includes reexports.

Table 22.

Samoa: Origin of Imports, 1997/98–2002/03 1/

(In percent of total)

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Source: Central Bank of Samoa.

The categorization covers some territorial entities that are not states as understood by international law, but for wl statistical data are maintained on a separate and independent basis.

Middle East, Africa, and Latin America.

Table 23.

Samoa: Services and Income Account, 1997/98–2002/03

(In millions of U.S. dollars) 1/

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Source: Centrai Bank of Samoa.

Using period average exchange rates.

Excludes freight and insurance.

Table 24.

Samoa: Composition of Outstanding External Debt, 1997/98–2001/02

(In percent; end of period)

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Sources: Treasury Department of Samoa; and Central Bank of Samoa.

Data for 1997/98–1998/99 reflect the government’s assumption of Polynesian Airlines’ liabilities while data for 1999/00–2001/02 only relate to DBS loans guranteed by the Government.

Table 25.

Samoa: Exchange Rates, 1997–2002

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Sources: Central Bank of Samoa; IMF Information Notice System, and International Financial Statistics.

Except Japanese yen, where data is yen per tala (source: IMF, International Financial Statistics).

Increase in index indicates an appreciation of the tala (source: the IMF Information Notice System).

1

This paper was prepared by Ayako Fujita (ext. 37368).

2

The NPF is the only pension fund in Samoa. Participation in the NPF is compulsory for all public and registered private sector workers.

3

At end 2002, the Treasury had foreign currency deposits of around $5 million (excluding sinking funds).

4

The weight for food products in the CPI is 58.5 percent.

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Samoa: Selected Issues and Statistical Appendix
Author:
International Monetary Fund