Bangladesh: Poverty Reduction Strategy Paper
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International Monetary Fund. Asia and Pacific Dept
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The Sixth Five Year Plan, as outlined in Bangladesh's Poverty Reduction Strategy Paper, targets strategic growth and employment. The medium-term macroeconomic framework plan entails the involvement of both the private and public sectors. Human resources development strategy programs reaching out to the poor and the vulnerable population, as well as environment, climate change, and disaster risk management, have been included in the plan. Managing regional disparities for shared growth and strategy for raising farm productivity and agricultural growth have been outlined. Diversifying exports and developing a dynamic manufacturing sector are all inclusive in the proposed plan.

Abstract

The Sixth Five Year Plan, as outlined in Bangladesh's Poverty Reduction Strategy Paper, targets strategic growth and employment. The medium-term macroeconomic framework plan entails the involvement of both the private and public sectors. Human resources development strategy programs reaching out to the poor and the vulnerable population, as well as environment, climate change, and disaster risk management, have been included in the plan. Managing regional disparities for shared growth and strategy for raising farm productivity and agricultural growth have been outlined. Diversifying exports and developing a dynamic manufacturing sector are all inclusive in the proposed plan.

Part 2: Technical Framework

Macroeconomic Scenario for the Sixth Five Year Plan (2011-2015)

Introduction

A centre piece of the plan is the delineation of the country’s macroeconomic outlook during the SFYP. Based on the technical framework, background studies and related work, this paper provides three scenarios of macroeconomic outlook4. These have been supplemented by sectoral outlooks as well as employment and poverty implications.

Technical Framework for SFYP Scenario

The scenarios are generated using four linked models. These are:

  • A macro-economic framework containing five accounts delineating the economy to generate consistent macro economic outlook over 2003 to 2015 period.

  • A dynamic computable general equilibrium (DCGE) model based on an updated input-output table and a social accounting matrix for Bangladesh for FY07. The key outcomes of the macroeconomic framework are fed into the DCGE model to derive the sectoral implications.

  • An Employment Satellite Matrix (ESM), constructed for FY07. The sectoral value additions and outputs are linked with the ESM to calculate sectoral employment impacts under alternative scenarios.

  • The Distribution and Poverty Module has been developed using the information of Household Income and Expenditure Survey (HIES) 2005. Household income, consumption and sectoral price information generated in the DCGE are linked with this module to assess the poverty situation.

The rest of the note is organized as follows. In sections 3 and 4, key features the modeling system are discussed. The macroeconomic outlooks under three alternative scenarios are provided in section 5.

Modeling System and Its Interdependence

The interdependence of the modeling system is shown in Figure 1.

Figure 1:
Figure 1:

Interdependence of SFYP Modeling System

Citation: IMF Staff Country Reports 2013, 063; 10.5089/9781475521344.002.A021

Macroeconomic Framework

The Macroeconomic Framework (MEF) has been developed to assist the preparation of short and medium term macroeconomic outlook for the SFYP. The MEF architecture is best described as an extension of the ‘Finance Programming’ family of models.5,6 The MEF extends the characteristics of the Finance Programming Model by incorporating an explicit specification of output generation that takes into account production and factor market behaviour, incorporation of response parameters for key behaviours. It accounts for the linkages of production with money-and-credit, the balance of payments, and the government budget. The system has an integrated distribution and poverty module for examining the linkage between growth and poverty, which further extends MEF analytical capability.

The main feautres of the MEF are:

  1. The MEF consists of five accounts: (i) real side; (ii) fiscal; (iii) money and credit; (iv) balance of payments (BoP); and (v) poverty and distribution. In addition to these blocks, a debt block is appended to capture debt dynamics.

  2. Behavioural specifications for some keys variables namely the production function; revenue functions; capital formation; private investment functions; private consumption, CPI etc are defined. Real income generation is specified by a Cobb-Douglas function. Real private consumption, real private investment, CPI, real exports and imports are specified using estimated response parameters.

  3. There are three ways of estimating the parameters of individual equations of the specified model. The choices are: (i) econometric/statistical estimation, (ii) exact computation/calibration, (iii) a mixture of econometric and calibrated estimates. In MEF, paramters of the framework are specified using a a mixture of econometric and calibrated estimates.

  4. All accounts are inter-linked. Inter-dependence between variables of different blocks namely between real side and government budget; government budget, money and BoP; money and real side are active. For instance, domestic revenue generation critically depends on two components: (i) revenue base and (ii) tax rate. The normal growth of revenue base depends on the growth of the economy i.e. the revenue base is linked to the estimated GDP and import values.

  5. All key prices are endogenous. These include:

    • Consumer price index

    • Investment price

    • Export price

    • Import price

    • GDP deflator

    • Exchange rate

Data and Parameters

Data period considered in MEF is FY03 to FY10. The figures for FY10 are estimates. Almost all data used in the macroeconomic framework has been collected from secondary sources such as the Finance Division. Data sets (e.g. from mid-1980s to current years) for regression analyses were obtained from various officials documents such as Economic Review and Bangladesh Statistical Year Books. The deficit data have been provided by the Finance Division. Breakdown of value added (i.e. GDP) by labour and capital was obtained from the updated social accounting matrix (SAM) for Bangladesh for 2005. The World Economic Outlook forecasts were reviewed to get parameters for external sector (e.g. world prices of imports and exports, world inflation rate etc.).

As mentioned above, the time series data covering the period between the mid 1980s and the current years (in most cases thereby providing 20 to 25 year time series) were available to assess the regression coefficients (i.e. response parameters) of the explanatory variables. Regressions were conducted for real private investment; real private consumption; real exports; real imports; and consumer price index. The values of response parameters (i.e. estimated regression coefficients) are then linked to the relevant explanatory variables to first assess the generation of the series of explained variable in question.

Model Specification

Specification of the macroeconomic framework is discussed in this section. These are discussed in terms of five sub-sections such as (a) Production, Supply and Demand; (b) Government Income and Expenditure; (c) Balance of Payment; (d) Money and Credit; and (e) Government Debt.

Following notations are introduced for identification and references.

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Production, Supply and Demand



Nominal Variables

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Real Variables

Two alternative specifications are employed to specify the real production of good and services. In the first specification, labour and capital factors are organized in a Cobb-Douglas production function to generate real value addition (i.e. r_GDP). The specification is shown below.

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Prices

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Fiscal Side: Government Income and Expenditure Revenue

Revenue mobilization is usually classified under three heads in Bangladesh-NBR tax; Non-NBR tax and Non-tax revenue. Almost all major tax sources are covered under the NBR tax head and thus constitute the major revenue source. All types direct and indirect taxes are covered under this head. In order to provide scopes to assess implication of tax base change as well as tax rate change on revenue, revenue specifications are defined in terms of estimated legal tax bases and effective tax rates. Legal bases of a particular tax system constitute a smaller segment of the corresponding economy-wide bases (i.e. GDP for domestic taxes, imports for trade taxes, etc.), which are considered as the tax bases for levying tax rates. Legal bases (for instance the base of domestic VAT) are usually significantly smaller than the economy-wide bases (the economy-wide base for domestic VAT is GDP or consumption) due to exemptions, exclusions and deductions. Following example describes the relationship between economy-wide base and the legal base.

Tax Revenue = Legal Tax Base x Tax Rate. Where, Legal Tax Base ≤ Economy Wide Base.

The advantages of this specification are briefly discussed.
  • It allows endogenous adjustment of the legal bases due to variations in the corresponding economy-wide bases.

  • It thus shows, with fixed tax rates, revenue changes due mainly to the endogenous legal base change.

  • The size of legal bases can be altered by introducing new measures to change coverage.

  • It thus captures, with fixed tax rates, revenue changes due to the endogenous legal base change and new measures led coverage change.

  • It also captures, with varying legal bases (either due to endogenous change or due to new coverage measures), revenue changes due to the imposition of new tax rates.

The major problem with the above specification is the non availability of legal base data by various tax systems. However, this information can be obtained from the records of the National Board of Revenue (NBR)9.

As mentioned above, according to the adopted classification, total revenue is composed of tax revenue and non tax revenue. Tax revenue is generated from two broad heads: NBR taxes and Non-NBR tax. NBR tax accounts for about 95 percent of tax revenue collection. It includes revenue mobilization from income bases; domestic production/consumption bases and international trade bases. The revenue generations are defined below.

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Expenditure

Government expenditure is classified into four different categories. These are (i) pay-allowances and purchases of goods and services; (ii) interest payment on domestic and external debt; (iii) subsidies and transfers; and (iv) Capital and development expenditure.

Specifications for pay and allowances and purchases of goods and services are provided below.

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A significant part of resources is spent to pay for interest accrued to domestic and external debt. The size of interest payment depends on debt dynamics. Interest payment projections are derived in the debt block and hence are obtained directly from the debt block.

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Allocations for subsidies and various transfer programme have been increasing in recent years to mitigate real income loss of various vulnerable groups as; income loss of public enterprises and to restrict full incidence of world prices of key importable on the domestic economy10. The specifications for transfers and subsidies are provided below.

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The main objectives of development and capital expenditures are to create opportunities for economic growth in line with the overall development perspective. Thus allocations may vary in accordance to the development goals. Such decisions although consistent with the development goals and other key parameters, they are usually exogenous to the system. The specifications of the development and capital expenditures are shown below.

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The difference between government income (i.e. total revenue) and total government expenditure (i.e. total expenditure) shows the balance of the government budget. This is defined as:

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The financing dynamics are captured below.

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Money Side: Money Supply and Domestic Credit

The money stock (or supply) is an important policy instrument. Authorities influence the macroeconomic dynamic by changing the size of the money supply. Changes in money supply lead to changes in liquidity, which may affect expenditure, production, employment, as well as the balance of payments. The liquidity position also affects factors such as real incomes, prices and interest rates, which usually influences the behaviour of how money is held. Furthermore, in a resource scarce economy under conditions of declining external inflows, governments usually turn to the banking sector for funds to bridge budget and resource gaps. Thus, the size of the money supply and the behaviour of other related monetary variables determine the size of government borrowing.

Furnished by its member countries, the International Monetary Fund (IMF) presents monetary and financial data on three levels. The balance sheets of the monetary authority (MA), usually central banks and deposit money banks (DMB) are included in this first level. In the second level, the balance sheets of MA and DBM are consolidated into a Monetary Survey. A monetary survey provides a statistical measure of money and credit. Finally, the third level data consolidates the balance sheets of a monetary survey and non-bank financial institutions (NBFIs) into a Financial Survey. In creating the macroeconomic framework described in this paper, the focus is on the monetary survey or banking system11 since it provides sufficient information concerning money and credit.

Money supply (M2) is determined by the combined sizes of the net domestic assets and net foreign assets. The money supply function is specified as:

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Net foreign asset is a policy variable determined with respect to the overall money and credit situation. This is defined as:

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The stock of net domestic asset (NDA) is defined by the combined sizes of the domestic credit (DCR) and nets other asset (NOA).

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In this exercise, the required level of money supply is contingent on the size of domestic credit in particular the required size of public credit (CRg) from the baking system. The required size of public credit is equal to the gap between the budget deficit amount and combined resources expected from foreign loan and non bank borrowing. Credits to the private (CRpv) and non financial sector (CRnonfin) are policy variables determined with respect to the investment planning. Domestic credit flow at a particular time is composed of flows of all types of credit. This is defined as:

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As mentioned, the required size of public credit is equal to the gap between the budget deficit amount and combined resources expected from foreign loan and non bank borrowings. Variations in public credit requirement based on the size of budget deficit, foreign loan and non-borrowing may likely to influence the size of money supply12. The association between fiscal and money sectors is depicted in Figure 2:

Figure 2:
Figure 2:

Linkage between Fiscal side and Money side

Citation: IMF Staff Country Reports 2013, 063; 10.5089/9781475521344.002.A021

Credit to private sector (CRpv) and non financial (CRnonfin) is a policy variable determined with respect to the investment planning. Domestic credit flow at a particular time is composed of flows of public and private credit. This is defined as:

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Net other asset is a policy variable determined with respect to the overall money and credit situation. This is defined as:

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Stock of Debt and Interest Payment

Allocation for interest payment essentially depends on the size of debt stock and effective rate of interest. Although a detail debt stock model is usually used to estimates stock of outstanding debt, here a simplified framework is adopted to capture debt dynamics and corresponding interest payment liabilities. Current levels of borrowings are added to their outstanding debt to estimate stock of debt. Effective interest rates are then applied to the debt stock to calculate interest payment liabilities of the current year13. The estimated interest payment liabilities are directly linked to expenditure component of the government budget to capture allocation for interest payment. Debt and interest payment specifications are shown below.

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Interest payment liabilities reported for the data periods are divided by their respective outstanding debts to derive the average effective interest rates for the domestic and external loan. The estimated average effective rates are also adopted in the projection years to estimate the interest payment liabilities.

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Balance of Payment: External Account

Trade balance is defined as the difference between the exports and imports. The specification is shown below.

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Lagged Exports is augmented by growth rate to derive the exports of goods and services. The growth is specified as a product of the growth of real exports and export price index (EPI). The specification is shown below.

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Lagged Imports is augmented by growth rate to derive the imports of goods and services. The growth is specified as a product of the growth of real imports and import price index (MPI). The specification is shown below.

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Service balance is defined as the difference between the receipts and payments. This is specified as:

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Balance of income component is defined as the difference between the receipts and payments. This is specified as:

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Current transfer is composed of official and private transfers. Inflow of remittance is included in the private transfer flows. Their specifications are shown below:

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Balance of current account composes of balances of trade, service, income and current transfers. This is defined as:

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Capital account is defined to move in line with the observed growth rate. The growth rate may be varied to capture changes in the account with consequent impacts on the overall balance of the BoP account. The specification of the capital account is shown below.

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Financial account consists of a number of elements. They include foreign direct investment; foreign portfolio investment; net foreign loan; other long and short term loans; other assets; trade credit; net of commercial bank activities. In the trend case, these elements are defined to move in line with their observed growth rates. Each of growth rates may be varied to capture changes in the respective component with consequent impacts on financial balance and the overall balance of the BoP account. Specifications of all components of financial accounts are shown below.

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The overall balance is covered by resource from the central bank. Any further discrepancies between the balance and the central bank resource are put into the error and omissions head.

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SFYP Scenario



Key Assumptions for Setting the Scenarios

  • 1. The main source of growth envisaged during the SFYP is the accumulation of factor especially capital. Factor accumulation is supplemented by technological shift for some activities such as agriculture. Moderate improvement in capital accumulation is expected under the baseline scenario whereas substantially large improvements in investment and capital accumulation are required under the high and the medium policy shift scenarios. It is also assumed that agriculture activities will experience significant improvement in production technology which may allow more than 4.5 percent growth in agriculture under the high policy shift scenario.

  • 2. In line with the past experience, the private sector would play the prime role in mobilizing resources for the SFYP. It is assumed that investment environment as well as the confidence of investors (i.e. local and external) will enhance with discernible improvements in following key areas:

    • Infrastructure-road, railways, dykes and bridges

    • Energy security-electricity and gas

    • Telecommunication

    • Ports

    • Economic administration including legal framework

    • Project implementation capacity

    • Overall socioeconomic environment including law and order situation

  • 3. The public sector will assume the pivotal role for creating conducive environment for investment by bringing visible improvements in the above mentioned areas. Historically, the government has relied on the Annual Development Program (ADP) to implement public projects including those in infrastructure. Although, the ADP model has worked in the past when the domestic resource base was small and the country was highly dependent on foreign assistance to carry out public sector investment programs, it is now apparent that it is no longer an adequate mechanism and this will be more evident during the SFYP. Experiences in many countries suggest that Public Private Partnership (PPP) model is an effective alternative arrangement for implementing large scale infrastructure projects.14 Thus, in addition to existing project implementation mechanism through ADP, a strengthened PPP framework especially for implementing infrastructure and energy projects would be critical for the SFYP. It is likely that PPP investment as a share of GDP would need to rise to at least 3 percent in FY15.

  • 4. Large inflow of foreign direct investment (FDI) has been assumed especially under the high/medium policy shift scenarios. Financial intermediation process must improve substantially to tap domestically available resources (e.g. foreign remittances) for investment as well.

  • 5. Considering the important role of remittances, appropriate policies will be needed to promote remittances as a tool of promoting both welfare of recipient households and raising productive investments. Along with institutional support to maximize remittance inflows through formal channels, better investment opportunities would be created for sustainable and productive use of remittance incomes via investment opportunity development, microenterprise development and enterprise development support.

  • 6. Tax effort is very low in Bangladesh. ‘Bangladesh collects only 9 percent of GDP as taxes whereas tax potential is likely to be in the range of 14-15 percent. The gap between this potential and actual collection is an indication of poor tax administration in Bangladesh which needs to be addressed during SFYP. For widening of tax base, SFYP would need measures to phase-out tax incentives, improve structural tax characteristics, administration and compliance. It is assumed that current initiatives to reform the VAT and income tax system within FY11 will help raise the tax effort.

Under the medium and high policy shift scenarios, the ready-made garment sector will continue to experience high rate of growth. Also, exports from the non-RMG sector will rise substantially. The current concentrated export basket will be diversified which will reduce vulnerability of the economy to any negative external shocks. The skill of the manpower will be enhanced with a view to fulfilling the need of the expanding sectors.

Regional integration effort through SAFTA, BIMSTEC and bilateral FTAs would be promoted with a view to enhancing Bangladesh’s access to markets of neighboring countries.

The Padma Bridge will be completed by 2013 invoking salutary effects on income generation, trade facilitation and poverty reduction. The Padma Bridge would boost the country’s GDP by 1.2 percent, revive the fortune of Mongla Port and cut poverty in the poorest south-west region of the country. The government needs to take advantage of the Padma Bridge to embark on development plan for the southwestern region covering a number of areas e.g. development of multi-modal transport system; revival of Mongla port and establishment of export zones; rail link with other regions; and exploiting farm and non-farm growth potentials.

Table 1:

SFYP Scenario for Key Economic Indicators, FY10 to FY15

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Table 2:

SFYP Scenario: Government Budget, FY10 to FY15

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Table 3:

SFYP Scenario for Balance of Payments, FY10 to FY15

(In millions of US$ or otherwise indicated)

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Table 4:

SFYP Scenario for Monetary Survey

(Stock)

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Annex 1: Regression Results

Table 118:

Regression Results Private Consumption

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Note: in the first three equations nominal private consumption data was deflated by CPI GDP deflator to calculate the real series.

In other two equations nominal private consumption data was deflated by GDP deflator to get the real series.

Table 2:

Regression Results Private Investment

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Note: in the first two equations nominal private investment data was deflated by GDP deflator to calculate the real series.

In other three equations nominal private investment data was deflated by CPI to get the real series

Table 3:

Regression Results Export

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Table 4:

Regression Results CPI

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Table 5:

Regression Results Import

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Annex 2: Some Tax Revenue Sources and Their Proxy Bases

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Note: The Table is adapted from Sheetal Chand, “Some Procedures for Forecasting Tax Revenue in Developing Countries,” DM/75/91, IMF, October 1975.
4

These scenarios are undergoing revisions to reflect revised data for the base years as well as changes in key assumptions; parameter and elasticity values. Therefore, the final macroeconomic scenario for the SFYP may show some differences than the scenarios presented in this report.

5

Barth, R.C., and Hemphill, W. (2000): Financial Programming and Policy: The Case of Turkey, Washington: IMF Publication Services.

6

Theoretical Aspects of the Design of Fund-supported Adjustment Programmes’ Occasional Paper 55, Washington DC: International Monetary Fund, Sept 1987. “… A Financial Programming Model is an instrument composed of accounting identities complemented by a set of behavioral relationships. For analysis, this instrument can be applied to any package of policy measures designed to achieve a given set of user-defined macroeconomic goals. The MEF architecture expresses exactly these attributes; and the expression occurs within the context of consistent economic frameworks (SAM/Flow-of-Funds) that can be moved forward in time to analyze and forecast policy impacts on the economy.

7

Values of all parameters (including production function) are contained in the five worksheets of the macro economic framework.

8

Alternatively, labour demand may assume to grow at the observed growth rate reflecting a steady state. According to labour force statistics labour demand grew at 4 percent between 2000 and 2003 and by 5 percent between 2003 and 2005. In this exercise, scope to adopt alternative specifications – modified labour demand and steady state is allowed to assess impacts of these specifications.

9

In an earlier paper Mansur and Khondker (1994) estimated the legal base of the Bangladesh tax system. For details please see Ahsan H. Mansur and Bazlul Haque Khondker (1994), “Some Estimates of Tax Potential with Reference to Bangladesh”, Dhaka University Journal of Business Studies, Vol. 15(1), 117-119.

10

Although it is expected that subsidies restraint full transmission of world import prices the association between subsidy and CPI could not tested due to lack time series data. We could collect data for 10 years i.e. 1989 to 2007.

11

Three reasons are cited for focusing on the banking system rather than the entire financial system. (1) Empirical evidence suggests a strong association between the monetary liabilities of the banking sector and aggregate nominal expenditure in an economy thereby affecting inflation, balance of payments and growth. (2) Ready availability of banking sector data for monitoring and analysis. (3) For most of the developing and transition economics, where the financial markets are still not well developed, the banking system accounts for a major segment of the economy’s financial assets and liabilities.

12

The association may be governed by the liquidity positions of the banking system. In a situation of high liquidity required public borrowings may be covered from the existing liquidity leading to negligible impact on the growth of money supply. In other situation, the impact may be significant.

13

As mentioned, a detailed debt model may be used to capture dynamics. A detail debt model usually captures debt by different agencies and differential interest rates and maturity period. The results of such a detailed debt framework can easily be linked to the other blocks of the existing framework.

14

Many countries in the region have successfully adopted the right PPP framework for accelerating investment in the critical infrastructure sectors. The examples of China, East Asia, Middle East and India are particularly noteworthy. In the oil producing Gulf Cooperation Council (GCC) countries, the massive $2 trillion investment plan currently underway, is largely being implemented under various PPP arrangements. Infrastructure investment in India under PPP is projected to increase to US$500 billion under the current five year plan.

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Bangladesh: Poverty Reduction Strategy Paper
Author:
International Monetary Fund. Asia and Pacific Dept