Morocco: Request for an Arrangement Under the Precautionary and Liquidity Line and Cancellation of the Current Arrangement
Author: International Monetary Fund. Middle East and Central Asia Dept.
Publication Date:
05 Aug 2014
eISBN:
9781498348140
Language:
English
Keywords:
ISCR; CR; successor PLL arrangement; IMF Deputy managing director; Morocco; government; debt ratio; euro zone GDP Growth; short-term debt; market access; accounts payable; Europe; Middle East
Download PDF (2.1 MB)

EXECUTIVE SUMMARYMorocco’s economic track record was challenged in recent years by a series ofexogenous shocks, to which the authorities responded vigorously. Facing a difficultinternational environment, the authorities adopted, with the support of the Fund’sPrecautionary and Liquidity Line (PLL), a policy program aimed at restoring fiscal andexternal buffers while strengthening competitiveness and promoting higher and moreinclusive growth. The program remained broadly on track and the authorities did notdraw on the PLL.The outlook is improving but remains subject to significant downside risks. Growthwill slow in 2014, but it is expected to accelerate over the medium term owing tostructural reforms and improved global conditions. However, this outlook remainssubject to major external risks. A protracted period of slower growth in Europe, a surgein global financial market volatility linked to the exit from unconventional monetarypolicies in large advanced economies, and higher oil prices resulting from geopoliticaltensions could significantly degrade the balance of payments.The authorities are requesting a two-year successor PLL arrangement with a loweraccess (550 percent of quota) than the first arrangement. The current PLL hasprovided useful insurance against external risks while anchoring the authorities’ reformagenda and sending positive signals to markets. Given significant global risks, asuccessor arrangement, which the authorities intend to treat as precautionary, wouldcontinue to support their policies. The lower access reflects the strengthening of theeconomy in the past two years as well as a balance of risks lower than two years ago.Staff considers that Morocco continues to qualify for a PLL arrangement andrecommends the approval of the authorities’ request. The proposed arrangementcarries low risks to the Fund and would have minimal impact on the Fund’s liquiditywere the authorities to draw on the full amount available. The authorities’ policypackage provides reasonable prospects of exit at the end of this arrangement if externalcircumstances warrant.

Abstract

EXECUTIVE SUMMARYMorocco’s economic track record was challenged in recent years by a series ofexogenous shocks, to which the authorities responded vigorously. Facing a difficultinternational environment, the authorities adopted, with the support of the Fund’sPrecautionary and Liquidity Line (PLL), a policy program aimed at restoring fiscal andexternal buffers while strengthening competitiveness and promoting higher and moreinclusive growth. The program remained broadly on track and the authorities did notdraw on the PLL.The outlook is improving but remains subject to significant downside risks. Growthwill slow in 2014, but it is expected to accelerate over the medium term owing tostructural reforms and improved global conditions. However, this outlook remainssubject to major external risks. A protracted period of slower growth in Europe, a surgein global financial market volatility linked to the exit from unconventional monetarypolicies in large advanced economies, and higher oil prices resulting from geopoliticaltensions could significantly degrade the balance of payments.The authorities are requesting a two-year successor PLL arrangement with a loweraccess (550 percent of quota) than the first arrangement. The current PLL hasprovided useful insurance against external risks while anchoring the authorities’ reformagenda and sending positive signals to markets. Given significant global risks, asuccessor arrangement, which the authorities intend to treat as precautionary, wouldcontinue to support their policies. The lower access reflects the strengthening of theeconomy in the past two years as well as a balance of risks lower than two years ago.Staff considers that Morocco continues to qualify for a PLL arrangement andrecommends the approval of the authorities’ request. The proposed arrangementcarries low risks to the Fund and would have minimal impact on the Fund’s liquiditywere the authorities to draw on the full amount available. The authorities’ policypackage provides reasonable prospects of exit at the end of this arrangement if externalcircumstances warrant.

Context

1. Morocco’s economic track record was challenged in recent years by a series of exogenous shocks. After a decade of strong economic performance, high international oil prices, the crisis in Europe, and the transition in Arab countries took a toll on macroeconomic balances. Both fiscal and external deficits widened significantly in 2011–12 while growth suffered from low agricultural output. Inflation remained low. Unemployment has been high, particularly among the youth. Despite some progress over the past decade, more is needed to reduce poverty, which remains pervasive.1

2. Supported by a Precautionary and Liquidity Line (PLL) arrangement, the authorities adopted an ambitious program to reduce vulnerabilities while addressing medium-term challenges. The Executive Board approved a 24-month PLL arrangement on August 3, 2012 in the amount of SDR 4.1 billion (700 percent of quota, about US$6.2 billion). The program aimed at restoring fiscal and external buffers, mainly through fiscal consolidation, while pursuing structural reform to strengthen competitiveness and promote higher and more inclusive growth. The program remained broadly on track throughout its implementation, and the Board completed the third and last review on January 31, 2014. The authorities have treated the PLL as precautionary and did not draw on the line despite a more challenging external environment than anticipated at the inception of the arrangement.

3. As this PLL comes to an end, the authorities have requested a successor two-year arrangement, which they intend to treat as precautionary. The authorities consider that the PLL has served them well, providing useful insurance against external risks, anchoring their program of reforms, and sending positive signal to markets.2 In light of this experience, and in an external environment that remains subject to significant downward risks, they consider that a successor arrangement would usefully continue to support their program and provide important insurance against external risks. In particular, the economy would be significantly affected by a protracted period of slower growth in Europe, heightened financial market volatility linked to the exit from unconventional monetary policy, and a surge in oil prices resulting from geopolitical risks. The authorities wish to cancel the current arrangement upon approval of the new one.

Recent Developments

4. A new ruling coalition led by the Justice and Development Party (PJD) was formed in October 2013. The previous coalition, also headed by the PJD, a moderate Islamist party, ended in the summer 2013 when the junior party Istiqlal withdrew from it. The center-right National Rally of Independents (RNI) replaced Istiqlal after protracted negotiations, ending a period of uncertainty that had delayed policymaking and affected consumer and investor confidence. Since the formation of the new coalition, the pace of reforms has picked up significantly. Local elections are expected mid-2015 and parliamentary elections in 2016.

5. Growth has slowed, reflecting the weak external demand and a return to normal of agricultural production after an exceptional 2013. Overall growth was 4.4 percent in 2013, as a bumper crop pushed agricultural growth close to 20 percent. Non-agricultural growth slowed to 2.3 percent from an average of 4.5 percent over the past 10 years, mostly reflecting the weak European economy. In the first quarter of 2014, total growth further decelerated to 1.7 percent (year-on-year), pushed down by a return to normal cereal yields. Nonetheless, leading conjonctural indicators point to an acceleration of activity as confidence returns and external demand rebounds. Inflation remained low in 2013, averaging about 2 percent despite the increase in the prices of some subsidized energy products. Through the first five months of 2014, inflation stayed low at 0.4 percent year-on-year, as a result of a contraction in food prices (-1.2 percent) while core inflation was about 1½ percent. Unemployment in the first quarter of 2014 increased to 10.2 percent from 9.2 percent in 2013, remaining particularly high among the youth.

6. Fiscal performance so far in 2014 remains consistent with achieving further reduction in the deficit. The fiscal deficit was significantly reduced from a peak of 7.4 percent of GDP in 2012 to 5.5 percent of GDP in 2013, through expenditure cuts. During the first five months of 2014, tax revenue was in line with projections based on observed past years’ seasonality, reaching about 40 percent of the annual target (about 9 percent of GDP). Grants and nontax revenue were slightly lower than expected, but these typically do not follow a regular seasonal pattern. Expenditure performance over the period was mixed. Wage expenditure was at the expected level (about 5¼ percent of GDP) and subsidy outlays decreased by 7½ percent compared to the same period last year, as the government’s efforts in this area bore fruit. However, spending on goods and services and grants reached about 46 percent of the annual projection as the authorities accelerated transfers to public entities at the beginning of the year, affecting the infra-annual pattern of spending within the year, but not the overall annual envelope, which, by law, is a binding ceiling. Capital spending reached 46 percent of the annual target during the first five months of 2014. This reflected in part a decision to reduce the grace period for carrying over unspent credits from the previous year as a way to improve spending programming throughout the year, but it is not expected to affect total capital spending. The authorities continue to closely monitor budget execution. In particular, the two committees that were set up in 2013 following the 2012 higher-than-projected fiscal deficit continue to meet regularly.3 Separately, on May 1, 2014, the authorities announced that the minimum wage for public servants will be raised by 200 dirham (an increase of about 7 percent).4

7. Reserves increased sharply in recent months. The current account balance improved by 2 percent of GDP in 2013, thanks largely to a lower trade deficit. Together with sizeable foreign direct investment (FDI), this helped stabilize international reserves above four months of imports. Through May 2014, and relative to the same period in 2013, exports grew by 7.5 percent notwithstanding a significant decline in phosphate exports, owing to the strong performance of exports from newly developed industries (e.g., cars and aeronautics). Imports grew by 4.0 percent, reflecting higher imports of food (wheat) and fuel products. As a result, the trade deficit increased by 0.8 percent. At the same time, lower remittances were more than offset by higher tourism receipts. FDI declined in January–May 2014 compared to the same period last year when it was exceptionally boosted by foreign acquisitions of domestic companies. The reserve position improved sharply since the issuance of US$1.8 billion Eurobonds in the international financial market by the state-owned phosphate office (OCP) in April and May and a €1 billion sovereign issuance in June. As of June 20, reserves were US$22.4 billion, equivalent to 4.8 months of imports of goods and services or 97 percent of the Fund’s Assessing Reserves Adequacy (ARA) metric.5

8. The central bank (BAM) has left its policy rate unchanged at 3 percent since March 2012, in consideration of the weak external demand and the potential inflationary impact of the subsidy reform. Liquidity conditions improved and, consequently, BAM’s interventions decreased. During the first quarter of 2014, liquidity conditions improved following the cut from 4 percent to 2 percent in the required reserve ratio in March 2014 and BAM liquidity advances at 7 days declined to 39 billion dirham on daily average in 2014Q2 from 52 billion dirham in 2014Q1. BAM has also continued with the implementation of measures to facilitate access to finance to very small, small and medium enterprises.6 Liquidity further improved in the second quarter of 2014 following the increase in international reserves.

9. Credit growth has accelerated slightly, while nonperforming loans (NPLs) remain on the rise. Credit to the economy grew at 4.4 percent year-on-year in April 2014, up from 3.9 percent at end-December 2013. This acceleration was in all categories of credit except real estate. Reflecting the slowdown in activity, NPLs increased to 6.4 percent of total loans in April 2014 from 5.9 percent in December 2013 but remain adequately provisioned. Lending rates decreased by 56 basis points to 5.96 percent, reflecting a decline in the rate of cash advances for companies.

10. The authorities have steadily moved ahead with their fiscal reform agenda. Significant progress has been made recently on several fiscal fronts:

  • Organic budget law (OBL). A draft new OBL was adopted by the first chamber of Parliament on July 8, 2014 and is now being discussed by the economic and financial commission of the second chamber. As described below, the draft new law introduces welcome improvements over the current law.

  • Subsidies. The authorities eliminated subsidies on gasoline and industrial fuel in February, and on the fuel used for electricity production in June. To compensate for the higher fuel cost, the authorities have entered a program contract with the public electricity company (ONEE) that includes direct cash transfers during the next four years as well as measures to improve the financial viability of the company, notably through a revision of electricity tariffs. The authorities began implementing quarterly reductions of the per-unit subsidy on diesel at the beginning of the year.

  • Pension. A parametric reform of the main public pension fund was announced to social partners on June 18, during a high-level meeting chaired by the head of government. The goal is to finalize the details of the parametric changes with social partners in the coming weeks and make the necessary legal changes so the reform can enter into force in 2015.

  • Tax. In addition, the authorities have started implementing changes aimed at making the fiscal system more equitable and more supportive of competitiveness. Measures introduced in 2014 include the removal of tax exemptions on large agricultural firms and the progressive reduction in the number of VAT rates as well as an acceleration of VAT reimbursements to help improve the cash flow of enterprises.

Outlook and Risks

11. Growth in 2014 will be lower than in 2013, but is expected to pick up in the medium term. Following a bumper crop in 2013, agricultural growth is projected to be negative in 2014 as cereal production returns to normal. Non-agricultural growth is expected to accelerate, supported by stronger domestic demand, improving growth prospects in Europe, and continued strong performance of the new industries. Overall growth should thus reach about 3½ percent in 2014. Despite some increases in energy prices, inflation is expected to remain low at about 1 percent on average. Over the medium term, the impact of past plans to develop new sectors, the expansion of Morocco’s companies to new markets (e.g., sub-Saharan Africa), the effect of structural reforms, and an overall improvement in global conditions are expected to lift potential growth to about 5½ percent.

12. The fiscal deficit is expected to narrow further in 2014 through expenditure containment. The 2014 budget targets a reduction of about half a percent of GDP in the overall fiscal deficit to 4.9 percent of GDP. This reduction hinges on lower spending on subsidies that result from measures taken during the year. The reduction in the deficit will also be supported by a rationalization of capital spending. Revenue performance is expected to be slightly weaker than in 2013, due to the effects on income and profits taxes of the slowdown in non-agricultural GDP.

13. The current account balance is expected to continue improving. As a result of the reduction in the fiscal deficit, improving external demand, lower global energy prices, and the rapid development of exports from newly developed sectors, the current account deficit is expected to further decline below 7 percent of GDP in 2014. Reserves are projected to increase by close to US$2 billion in 2014 and end the year around 4.5 months of imports or 91 percent of ARA metric.7 They are projected to gradually increase above 100 percent of the ARA metric over the medium term.

14. The outlook remains subject to significant downside risks. A protracted period of slower growth in trading partners from advanced economies, especially in the euro area, could affect growth and the balance of payments. A surge in global financial market volatility, related to the exit from unconventional monetary policies in large advanced economies, could hamper access to international capital markets and indirectly affect FDI. Geopolitical risks in the Middle East, as well as in Ukraine/Russia could trigger commodity price volatility, and higher oil prices in particular, which would negatively affect both the current account and fiscal deficits. Pressing social demands may slow implementation of the necessary reforms. On the upside, better-than-assumed agriculture production would have a positive effect on growth and the current account.

Economic Policies

15. The authorities’ economic program aims to continue reducing external and fiscal vulnerabilities while fostering higher and more inclusive growth. In line with their current program, the authorities’ policy package relies on fiscal consolidation supported by fiscal policy reforms and a strengthening of the fiscal framework, sound monetary and financial policies, and structural reforms to boost competitiveness, growth and employment (see the authorities’ written communication (W-COM.), ¶3, attached).

A. Fiscal Policy

16. The authorities are committed to achieving a fiscal deficit target of 3 percent of GDP by 2017, while preserving growth (W-COM.-¶4). The reduction in the fiscal deficit targeted for 2014 is in line with the medium-term target. Between 2015 and 2017, the cyclically adjusted primary deficit would be almost halved from 2.6 percent to 1.4 percent of GDP and close to zero percent by 2019. Such a primary balance path is consistent with putting the public debt-to-GDP ratio on a downward path after its expected peak in 2015 so it is gradually reduced closer to 60 percent of GDP by 2019. Revenue is expected to remain broadly stable in percent of GDP. Fiscal adjustment will thus continue to come from expenditure rationalization, notably the reduction in the subsidy bill and the gradual moderation of the public payroll, while space is made for higher pro-growth spending on investment in infrastructure and human capital, including social protection programs. As noted in paragraph 6, the fiscal outturn through end-April suggests that the annual fiscal deficit objective for 2014 is achievable. As they did in 2013, the authorities are committed to reducing nonpriority spending as needed, should revenue or expenditure developments warrant adjustment in the course of the year to meet the deficit target.

17. The authorities are reforming the tax system following the recommendations of their national tax conference in April 2013 (W-COM.-¶5). The strategy is not intended to increase tax revenues, which are already among the highest in the region, but to widen the tax base and contain high tax expenditures. The authorities intend to make the tax system fairer and more supportive of competitiveness. The 2014 budget introduced measures in that direction, notably by starting to remove tax exemptions on large agricultural firms and to reform the VAT regime. It also introduced measures to better enforce tax payments by self-employed and liberal professions. The authorities intend to continue implementing the national tax conference’s action plan through the 2015 budget and beyond.

18. Subsidy reform has shifted to a higher gear and is bearing fruit (W-COM.-¶6). As noted in paragraph 10, significant progress has recently been made in advancing the reform of the subsidy system, helping achieve a substantial reduction in its cost and associated fiscal risks. The government is committed to pursuing the reform beyond the measures already taken. Further reduction in the diesel subsidy will be implemented through gradual adjustments, with a view to completely eliminating this subsidy by mid-2015. By then, all energy subsidies, except those on butane, will have been removed, which will help bring the subsidy bill below 3 percent of GDP (subsidy outlays were 6.6 percent of GDP in 2012 and 4.8 percent of GDP in 2013).8 Through recent and planned measures, the authorities are considerably shielding the budget from risks linked to the volatility of international oil prices. Furthermore, the authorities are looking at ways to progressively reduce subsidies on wheat and butane, the latter in part through measures aimed at substituting butane consumption in agriculture by the use of renewable energy. At the same time, social protection for the most vulnerable is being expanded through dedicated programs, including programs to support access to health care for the poor and access to education for school-age children.9

19. The effects of measures to contain the high public wage bill will be gradual over the medium term (W-COM.-¶7). The authorities intend to bring the public payroll below 11 percent of GDP in the medium term (from a projected 13 percent of GDP in 2014). Their strategy appropriately relies on several measures, including limiting the net creation of new positions, salary advances, and promotions to a well-defined budget envelope, in order to reach their medium-term goal. Achieving this objective is an important part of fiscal consolidation and will contribute to making space for pro-growth, pro-equity spending.

20. A new Organic Budget Law (OBL) will strengthen the budgetary framework (W-COM.-¶8). Adopting a new OBL is among the authorities’ top priorities for fiscal reform. Following its vote by the first chamber of parliament, the draft is currently under discussion in the second chamber. It enhances the existing 1998 OBL by introducing multiyear and program budgeting, performance management, and greater fiscal transparency. It also addresses weaknesses in the budgetary framework that became evident in 2012, by making wage expenditure appropriations binding ceilings and limiting the carryover of investment appropriations, although the related provisions would only be effective in 2016 and 2017 respectively, to give enough time to build capacity in line ministries that will be responsible, under the new framework, for enforcing these new limits.10 The authorities’ objective is to ensure that the law is adopted in time so the 2015 budget can be prepared under the new framework with respect to multiyear and program budgeting, subject to the validation of the new OBL by the Constitutional Court. Putting in place a strong regulatory framework deriving from the new OBL will be important. The Fund stands ready to provide technical assistance in this area to support the authorities’ efforts. Before permanent wage bill and investment carryover provisions of the new OBL become effective, the authorities will continue with the current technical measures to exert control in these two areas.

21. The first step of the authorities’ two-stage pension reform was launched in June 2014 (W-COM.-¶9). The financial situation of the pension system, particularly of the main public pension fund (Caisse Marocaine de Retraites, CMR), is tenuous. The authorities have prepared a two-stage reform. The first stage consists of a parametric reform aimed at improving the actuarial situation of the CMR and prolonging its viability. It was launched in June 2014 (paragraph 10). To put the system as a whole (public and private) on a sustainable footing, the second stage will consist of a broader structural reform including the merging of the existing four pension funds into two funds (one public, one private).

B. Monetary and Exchange Rate Policies

22. BAM will continue to conduct monetary policy in support of price stability while the authorities are preparing for a transition toward a more flexible exchange rate regime and a new monetary anchor (W-COM.-¶¶10, 11). In the context of a pegged exchange rate regime, BAM has been successful at achieving low inflation and anchoring inflation expectations. Although the peg has served Morocco well in the past, greater flexibility in the exchange rate regime would help support competitiveness, the resilience of the economy to exogenous shocks, and the authorities’ trade and financial diversification strategy. The authorities are preparing to make such a move within the next three years, if macroeconomic conditions, and especially the fiscal position, are supportive. The Fund is providing technical assistance in this area, including assistance on options for and operational management of a more flexible exchange rate regime and on strengthening BAM’s forecast and policy analysis capacity to support a new nominal anchor for monetary policy.

C. Financial Policies

23. Financial policies will continue to be geared toward strengthening banking supervision and regulation while promoting greater financial deepening (W-COM.-¶10). Banking supervision and regulation is being strengthened through the implementation of Basel III norms. In June 2013, BAM increased the capital adequacy requirement to 12 percent and the core capital requirements to 9 percent. In August 2013, it adopted new definitions of prudential capital that entered into force in January 2014, and of the short-term liquidity ratio, which is being introduced in line with the Basel III calendar. BAM continues to closely monitor potential risks linked to the expansion of Moroccan banks in sub-Saharan Africa, in coordination with relevant supervisors in host countries. This includes consolidated control and supervision of banking groups as a whole, as well as joint on-site visits with host supervisors. A new banking law, which aims at strengthening BAM regulation and supervision competencies, reinforcing the macroprudential framework, and fostering the development of Islamic banking, was adopted by the first chamber of parliament on June 25. A new draft of the Central Bank Statute, which already includes best international practices in a number of areas, aims to further strengthen BAM’s independence and extend its competence, is being finalized for submission to parliament.

D. Structural Reforms

24. The authorities are advancing their structural reform agenda, which aims at improving competitiveness, labor market conditions, and growth (W-COM.-¶12). To improve the business environment in 2014, an action plan comprising 30 measures is being implemented. These measures include streamlining administrative procedures for enterprises, improving investor protection by amending the law on limited-liability companies, strengthening public-private partnerships, and implementing measures to ensure the smooth application of the new procurement code. In April 2014, the authorities unveiled a new national industrial acceleration program, which seeks to further foster the development of new industries. A reform of the judiciary has also been launched, which is crucial to improve transparency, governance, and the business environment. The government is revamping its active labor market policies because most of them have had limited success so far, while initiating a discussion with social partners on how to make the labor code more supportive of job creation while promoting adequate work conditions. At the end of April 2014, the government announced a 10 percent increase in the minimum wage spread over the next two years, which runs the risk of deepening informality but is unlikely to affect competitiveness.

PLL Qualification

25. Staff believes that Morocco continues to qualify for a PLL arrangement. In addition to the generally positive assessment of Morocco’s policies by the Executive Board in the context of the 2013 Article IV consultation in January 2014, staff considers that Morocco meets the PLL qualification criteria.

A. General Assessment

26. Morocco’s economic fundamentals and institutional policy frameworks are sound, and the country is implementing, and has a track record of implementing, sound policies.

  • Economic performance has been strong. It kept a low fiscal deficit (averaging 2.5 percent of GDP during 2007–11) as well as low inflation (less than 2 percent) and a current account deficit of about 4.6 percent of GDP. Growth averaged almost 4½ percent during that period. The banking system has been stable. Over the medium term, the growth rate is expected to remain reasonably high and stable in the context of low inflation. Both public and external debt levels are assessed to be sustainable.

  • Despite an external environment that proved more difficult than initially anticipated, Morocco successfully managed to lower vulnerabilities over the course of its first PLL arrangement owing to sound policies (Box 1). With higher oil prices and lower growth than expected in advanced economy trading partners, external conditions were challenging throughout the implementation of the authorities’ program. The impact was felt mostly in 2012, with a significant widening of the fiscal and external deficits but, owing to a strong policy response, the fiscal deficit was brought back in 2013 close to its initial target at the inception of the PLL. During the 2013 Article IV consultation, Directors praised the resilience of the economy in “the face of significant external shocks and challenging domestic conditions.” They “welcomed recent measures that successfully helped reduce fiscal and external vulnerabilities.”

  • The authorities are committed to maintaining sound policies in the future, including ensuring medium-term fiscal sustainability. They are targeting a medium-term fiscal deficit of 3 percent of GDP by 2017, which corresponds to a primary balance of 1.4 percent of GDP (consistent with a gradual reduction in public debt). In addition to medium-term fiscal sustainability, the government’s main objectives are to improve competitiveness and productivity; reduce the unemployment rate to 8 percent over the medium term; and improve access to education and vocational training, health, and social protection. In this context, the authorities are committed to implementing an ambitious agenda for the promotion of higher and more inclusive growth.

  • The policy framework is sound, and has proven responsive to challenges. Morocco’s track record of strong economic performance has been supported by a strong policy framework. In particular, the authorities have shown a commitment to taking corrective actions in the face of unforeseen difficulties. After the unanticipated fiscal slippage in 2012, they have quickly implemented measures to rationalize spending and improve the monitoring of budget execution, pending the adoption of a new organic budget law that would structurally address the identified weaknesses.

Morocco: Achievements under the First PLL Arrangement

Morocco has made progress under its first PLL arrangement, with the authorities demonstrating strong commitment to reforms in 2013. However, vulnerabilities, especially on the external side, were not reduced so much as expected because of a worse-than-expected external environment and, initially, a slower pace of reforms. An unanticipated deterioration of the fiscal balance at the end of 2012 uncovered some institutional weaknesses that are being addressed.

The program was expected to strengthen growth and narrow fiscal and external deficits, supported by a moderate improvement in the external environment and domestic reforms. Growth was projected to reach 2.9 percent of GDP in 2012 and 5.5 percent in 2013. The fiscal target was set at 6.1 percent of GDP and 5.3 percent of GDP in 2012 and 2013 respectively, in line with the authorities’ objective of a budget deficit of 3 percent of GDP in the medium term. The current account deficit was projected to reach 7.4 percent in 2012 and 4.5 percent in 2013. Reserves were expected to lower to 3.9 months of imports. The macroeconomic scenario was supported by the following external assumptions and domestic reforms:

  • Euro zone GDP growth was projected to improve by 1.5 percent of GDP from 2012 to 2013. Oil prices were expected to fall from 106.5 in 2012 to 95.8 in 2013.

  • The authorities intended to reform the subsidy system by increasing the pass-through to reduce cost by 25 percent and to further reduce subsidies in other sectors. They aimed at moderating the wage bill by introducing performance-based compensation and stabilization of the workforce. The authorities also intended to reform the public pension fund and the tax system. The authorities planned to increase potential growth in the medium term by 1 percentage point of GDP by implementing structural reforms, including further improvement of the business climate and economic governance.

Morocco: Original PLL vs. Current Macro Framework

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Sources: Moroccan authorities; and IMF staff estimates.

Original PLL framework.

However, the external environment turned out significantly worse than expected and domestic reforms were initially delayed. Growth in the euro area trade partners was worse by 1.5 percentage points than expected, while oil prices were 13 dollars higher than forecasted. These factors, combined with a very poor domestic harvest in 2012, reduced real GDP growth by 0.2 percent of GDP, while inflation was 0.6 percentage point lower than expected. In addition, the implementation of the subsidy reform was initially delayed as reaching consensus on some specifics of the reform proved more challenging than anticipated.

As a result, the twin deficits widened in 2012, while weaknesses in public financial management (PFM) were uncovered. The current account deficit deteriorated significantly, to 9.7 percent of GDP instead of contracting to the expected 7.6 percent of GDP. The fiscal deficit also widened, reaching 7.4 percent of GDP. This sharp deterioration, mainly explained by overruns in wages, subsidies, and capital transfers, was neither prevented nor anticipated. It exposed the need to strengthen the monitoring of budget execution and to address weaknesses in the budgetary framework, notably by making wage appropriations binding and tightening the rules to carry over investment appropriations across budget years.

The authorities reacted by stepping up the pace of reforms, which helped achieve some of the outcomes as projected at the outset of the program. In 2013, the authorities implemented a series of measures that helped achieve their fiscal deficit objective, lower fiscal risk, and strengthen PFM. The budget framework was strengthened through temporary measures pending the implementation of a new organic budget law (OBL). Owing to tighter control, investment spending remained consistent with the overall fiscal objective, despite higher-than-projected carryover of unspent investment allocation from the previous year’s budget. From September 2013 to June 2014, the authorities implemented measures to partially index the prices of some subsidized petroleum products to international prices, and to reduce or eliminate subsidies on a number of products. However, the public debt and external debt at end-2013 were 6 percent of GDP and 8 percent of GDP, respectively, higher than projected at the onset of the program. Reserves remained resilient, at 4.3 months of imports, 0.5 months of imports higher than projected, owing in part to sovereign borrowing.

B. Assessment of Specific Criteria

27. Morocco performs strongly in three out of the five areas for PLL qualification, namely financial sector soundness and supervision, monetary policy, and data adequacy. In addition, it does not substantially underperform in the remaining two qualification areas, namely external position and market access, and fiscal policy.

External position and market access

Overall, Morocco does not substantially underperform in the external position and market access area.

  • Criterion 1. A sustainable external position. At end-2013, the current account deficit remained high at 7.6 percent of GDP, but was significantly lowered from its 2012 peak of 9.7 percent of GDP. Data available at this stage indicate that the current account deficit has continued to shrink so far in 2014. The exchange rate assessment still shows some evidence of moderate overvaluation of the dirham, though less than a year ago. Although the external debt increased over the past few years because of a combination of increasing financing needs and low spreads of international bonds, it remains sustainable under anticipated policies.

  • Criterion 2. A capital account position that is dominated by private flows. Private flows, usually dominated by FDI, have increased over the past few years and now constitute the largest share of the capital account. Nonetheless, public flows remain sizable, at around 30 percent of external debt inflow in 2013. Access to international financial markets by Moroccan corporations is nascent and still modest in size compared to other emerging markets.

  • Criterion 3. Track record of steady sovereign access to capital markets at favorable terms. With three sovereign bond placements at favorable terms over the past 18 months, Morocco’s market access remains well established. On June 13, 2014, Morocco issued a €1 billion 10-year bond at 3.5 percent, following successful issuances in December 2012 and May 2013. International market access for corporate Morocco is also on the rise. Following an issuance by a Moroccan bank in November 2013, the National Phosphate Company successfully tapped the international market with a US$1.55 billion Eurobond in April 2014 and an additional US$0.3 billion in May 2014. Nonetheless, even though sovereign access to international capital markets is well established, Morocco is still rated below investment grade by one international rating agency.

  • Criterion 4. A reserve position that is relatively comfortable. Although external pressures and uncertainties continue to be a concern, reserves have been broadly stable for more than a year. Considering existing controls on capital outflows that partially insulate them from capital account vulnerabilities, they have remained adequate above 90 percent of the Fund’s reserve metric for emerging markets. The stabilization of reserves is owed in part to the improvement in the current account deficit, but mostly to strong FDI inflows, substantial development partner assistance, and external sovereign borrowing. Reserves are expected to increase above 100 percent of the ARA metric over the medium term. However, reserves are not comfortable enough should the country be hit by some external shocks (Box 2).

Fiscal policy

Morocco does not substantially underperform in the fiscal area.

Criterion 5. Sound public finances, including a sustainable public debt.

  • Morocco remains committed to a sustainable fiscal path, and has a record of sound public finances, despite the challenges of 2012. The authorities have taken commendable actions to strengthen Morocco’s fiscal position and address the weaknesses they identified in their fiscal framework, reducing vulnerabilities in this area. Their policy program is consistent with further reducing the fiscal deficit to 3 percent of GDP by 2017. Staff’s assessment remains that Morocco does not substantially underperform in the fiscal area, based on the following considerations.

  • The authorities achieved their fiscal deficit objective in 2013. The deficit, including grants, was reduced by almost 2 percent of GDP to 5.5 percent of GDP, as programmed at the time of the second PLL review and very close to the initial target at the inception of the PLL arrangement. This reduction was achieved, as expected, in part because of higher external grants and lower global oil prices, but also thanks to strong policy action to limit the subsidy bill and to rationalize capital spending.

  • The 2014 budget targets a continued prudent reduction in the deficit through structural fiscal reforms. The further reduction to 4.9 percent of GDP is to be achieved mainly through a continued reduction in the cost of energy subsidies while social protection for the most vulnerable is being expanded through dedicated programs. Furthermore, the tax system is being adequately reformed and progress was made in quantifying the much-needed parametric reform of the main public pension fund. Budget execution so far in 2014 remains consistent with achieving the annual fiscal deficit target. The authorities are committed to taking appropriate actions to meet their annual target, as they did in 2013, should revenue or expenditure developments require adjustment.

  • The budget framework is being strengthened through the adoption of a new organic budget law (OBL). Until the relevant provisions of the OBL enter into force, technical measures to better control the wage bill and investment spending will remain in place.

  • Public sector debt remains sustainable, based on a rigorous and systematic debt sustainability analysis.11 The public debt is about 64 percent of GDP and is resilient to shocks to real GDP, the primary fiscal balance, the real exchange rate, and the real interest rate. After peaking at just under 66 percent of GDP in 2015, it is projected to progressively fall closer to 60 percent in the medium term as a result of fiscal adjustment. There are some risks linked to relatively high gross financing needs. The debt remains sustainable under a stress test involving the same shock that would generate the potential financing need under the proposed PLL arrangement.

Monetary Policy

Morocco performs strongly in the monetary policy area.

Criterion 6. Morocco has maintained low and stable inflation, in the context of a sound monetary and exchange rate policy framework. BAM has effectively anchored inflation expectations in the context of the exchange rate peg. Inflation has averaged 1.7 percent over the past 10 years and never exceeded 4 percent. Staff considers that the current monetary policy stance is appropriate within the existing monetary and exchange rate framework. The nonprimary output gap is moderately negative (-0.6 and -0.3 in 2013 and 2014, respectively) and risks to growth are tilted to the downside; nevertheless, monetary policy should remain cautious about the possible effects on inflation of price increases related to the subsidy reform. BAM has solid policy analysis capacity, which is currently being strengthened with technical assistance from the IMF. As discussed in previous staff reports, the monetary framework will need to evolve in line with a move toward a more flexible exchange rate.

Financial sector soundness and supervision

Morocco performs strongly in the financial sector area.

  • Criterion 7. The financial system is sound and there is no solvency problem that may threaten systemic stability. As of December 2013, the capital adequacy ratio was 13.3. Moroccan banks mainly fund themselves with domestic deposits (about 80 percent of non-equity funding). Liquidity pressures have decreased recently, helped by the March 2014 cut in the reserve ratio and international bond issuances. NPLs have increased to 6.4 percent of total loans as of April 2014, reflecting the slowdown in activity, but they continue to be closely monitored and adequately provisioned. At the institutional level, BAM supervisory powers cover not only banking institutions but also other financial institutions including, offshore banks, microcredit associations, and funds transfer companies. Coordination is being strengthened between BAM and other supervisory agencies, including the Insurance Supervisory Authority.

  • Criterion 8. Financial sector supervision is effective. BAM is further strengthening banking supervision in line with new Basel III standards. The capital adequacy ratio was increased in June 2013. New definitions of prudential capital and short-term liquidity ratio have been adopted in August 2013 and are in the process of being implemented. Moroccan banks fund themselves mainly through domestic deposits, but have started expanding their sources of funding to include the issuance of international bonds. BAM is closely monitoring potential risks linked to the expansion of Moroccan banks in sub-Saharan Africa and reinforcing coordination and exchange of information with supervisory and regulatory agencies in host countries, including consolidated supervision of groups and on-site visits. BAM has an adequate range of tools for intervention in noncompliant banks or those engaging in unsafe or unsound practices that put the interests of depositors and creditors at risk. A financial sector assessment (FSAP) update is scheduled for spring 2015.

Data adequacy

Morocco performs strongly in the area of data adequacy.

Criterion 9. Data transparency and adequacy. Data provision and quality are fully adequate. Morocco meets the PLL requirement on data transparency and integrity. Morocco subscribes to the Special Data Dissemination Standard and its data are adequate for surveillance and program monitoring. The authorities are committed to continuing to improve data quality and access, notably through participating in the OpenData Platform (ODP), for which a joint technical assistance mission was conducted by STA and the African Development Bank in January 2014.

C. PLL Approval Criteria

28. Morocco does not face any of the circumstances under which the Fund may not approve a PLL arrangement. Specifically: (i) as noted above, Morocco has access to international capital markets; (ii) there is no need to undertake large macroeconomic or structural policy adjustment; (iii) the public debt position is sustainable in the medium term, with a high probability; and, (iv) there are no widespread bank insolvencies.

Access Level and Duration

29. Morocco does not face a financing gap under the baseline scenario. Gross external financing requirements are expected to stabilize around US$9.7 billion in 2014, after peaking at almost US$11 billion in 2012 (Table 9). They are expected to be financed mostly through net FDI inflows (US$2.8 billion), medium- and long-term borrowing (US$6.4 billion), and net private and other capital flows (US$2 billion). Net international reserves are projected to remain broadly stable as measured in months of imports. In the absence of external shocks, reserves are projected to rise slightly above 90 percent of the composite reserve metric.

Table 1.

Morocco: Selected Economic Indicators, 2011–19

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Sources: Moroccan authorities; and IMF staff estimates.

Refers to the macro framework for the 3rd review in CR/14/22.

Revised macro framework.

Includes credit to public enterprises.

Table 2.

Morocco: Budgetary Central Government Finance, 2011–19

(Billions of dirhams)

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Sources: Ministry of Economy and Finance; and IMF staff estimates.

Refers to the macro framework for the 3rd review in CR/14/66.

Revised macro framework. More disaggregated data which were not available at the time of the 1st review have allowed for an enhanced classification of goods and services and grants as per GFSM 2001 guidelines.

Includes capital transfers to public entities.

Table 3.

Morocco: Budgetary Central Government Finance, 2011–19

(Percent of GDP)

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Sources: Ministry of Economy and Finance; and IMF staff estimates.

Refers to the macro framework for the 3rd review in CR/14/66.

Revised macro framework. More disaggregated data which were not available at the time of the 1st review have allowed for an enhanced classification of goods and services and grants as per GFSM 2001 guidelines.

Includes capital transfers to public entities.

Table 4.

Morocco: Budgetary Central Government Balance Sheet, 2011–19

(Billions of dirhams)

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Sources: Moroccan authorities; and IMF staff estimates.

Refers to the macro framework for the 3rd review in CR/14/66.

Revised macro framework.

Data for the remaining instruments are currently not available.

Table 5.

Morocco: Balance of Payments, 2011–19

(In billions of U.S. dollars, unless otherwise indicated)

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Sources: Ministry of Finance; Office des Changes; and IMF staff estimates and projections.

Refers to the macro framework for the 3rd review in CR/14/66.

Revised macro framework.

Excluding the reserve position in the Fund.

Public and publicly guaranteed debt.

Ratio calculated using debt stock and GDP in dirhams.