Papua New Guinea: Staff Report For The 2022 Article IV Consultation and Review of the Staff Monitored Program — Informational Annex
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PAPUA NEW GUINEA

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PAPUA NEW GUINEA

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PAPUA NEW GUINEA

STAFF REPORT FOR THE 2022 ARTICLE IV CONSULTATION AND REVIEW OF THE STAFF MONITORED PROGRAM — INFORMATIONAL ANNEX

May 25, 2022

Prepared By

Asia and Pacific Department

(In consultation with other departments)

Contents

  • FUND RELATIONS

  • RELATIONS WITH THE PACIFIC FINANCIAL TECHNICAL ASSISTANCE CENTER

  • INFORMATION ON THE ACTIVITIES OF OTHER IFIs

  • STATISTICAL ISSUES

Fund Relations

(As of April 30, 2022)

Membership Status

Joined: October 9, 1975; Article VIII

General Resources Account

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SDR Department

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Latest Financial Arrangements

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Projected Payments to Fund1

(SDR million; based on existing use of resources and present holding of SDRs):

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When a member has overdue financial obligations outstanding for more than three months, the amount of such arrears will be shown in this section.

Safeguards Assessments

The first Safeguards Assessment of the Bank of Papua New Guinea (BPNG) was completed. The assessment found that the Central Banking Act requires amendments to sufficiently protect the BPNG’s financial, personal, and institutional autonomy and enhance governance arrangements. Such amendments remain necessary after the 2021 review of the Act. While transparency is supported by compliance with International Financial Reporting Standards (IFRS), audit arrangements should be improved to safeguard the external auditors’ independence and align internal audit to international standards. The internal control system is being strengthened, including through the establishment of a risk management function. Closer engagement of the BPNG’s oversight bodies over the ongoing initiatives is needed to ensure timely implementation.

Exchange Rate Arrangement

Papua New Guinea’s de jure exchange rate arrangement is “floating”. On June 4, 2014, the BPNG introduced an exchange rate trading margin with a kina buying rate within 75 basis points (bps) above the interbank midrate and a kina selling rate within 75 bps below the midrate. Since November 2020, the exchange rate has stabilized within a two percent band against the US dollar. Accordingly, the de facto exchange rate arrangement was reclassified to “stabilized” from crawl-like, effective November 3, 2020. The BPNG publishes the intervention data in its annual report and semi-annual monetary policy statement.

Papua New Guinea maintains the following exchange restrictions subject to IMF approval under Article VIII, Section 2(a) of the IMF’s Articles of Agreement arising from: (i) the requirement to obtain a tax clearance certificate (TCC) evidencing the payment of all taxes prior to making payments or transfers for certain current international transactions; and (ii) the rationing of FX, which results in undue delays and arrears in current international payments. Papua New Guinea also maintains the following multiple currency practices (MCPs) subject to Fund approval under Article VIII, Section 3: an MCP arising from the potential spread deviation of more than 2 percent between the rates set by BPNG for its FX transactions with the government and embassies, and the rates used by AFEDs in transactions with their clients.

Article IV Consultations

The 2019 Article IV consultation discussions were held on October 28-November 9, 2019. It was concluded by the Executive Board on April 6, 2020 (IMF Country Report No. 20/95). Papua New Guinea is on the standard 12–month consultation cycle.

TA from Headquarters

FAD: In 2020, missions were conducted on IPSAS Cash Reporting, IRC external governance, Taxpayer service implementation, IRC organization design and IT tender evaluation support. Joint FAD/PFTAC mission on MTRS update and review were conducted in September and October 2020 and January-February 2021. In April 2021, TA was provided on the rewrite of Income Tax Act and Tax modeling. In December 2021, a mission on revenue administration program was carried focused on further development and introduction of new organizational structure for IRC.

LEG: A mission in September 2018 assisted in planning legislative reforms for the MTRS. In 2020 (February to March), a virtual mission was conducted on Institutional and Governance Review of the Internal Revenue Commission and PNG Customs

MCM: A mission in August 2018 delivered technical assistance in liquidity forecasting and management, and foreign exchange operations. Missions in December 2017 and February 2018 delivered TA on banking supervision.

STA: TA was provided on government finance statistics (January and September 2020); national accounts and price statistics (February 2020); a remote TA on Balance of Payments Statistics/Direct Investment (October 2020) and a remote TA on External Sector Statistics (February 2022). In January 2022 a virtual technical assistance mission was conducted on public sector debt statistics.

Resident Representative

The Regional Resident Representative Office for Pacific Island Countries based in Suva, Fiji was opened on September 13, 2010 and the office covers Fiji, Kiribati, Marshall Islands, Micronesia, Nauru, Palau, Papua New Guinea, Samoa, Solomon Islands, Tonga, Tuvalu, and Vanuatu. Mr. Neil Saker is the current resident representative.

The Fund is in the process of opening a Resident Representative Office in Port Moresby.

Relations with the Pacific Financial Technical Assistance Center

(As of April 2022)

The Pacific Financial Technical Assistance Centre (PFTAC) in Suva, Fiji, is a regional TA institution operated by the IMF with financial support of PFTAC member countries, the Asian Development Bank, Australia, the European Union, Korea, New Zealand, Canada and the US Government. The Center’s aim is to build skills and institutional capacity for effective economic and financial management that can be sustained at the national level. Member countries are: Cook Islands, Federated States of Micronesia, Fiji, Kiribati, Marshall Islands, Nauru, Niue, Palau, Papua New Guinea, Samoa, Solomon Islands, Timor-Leste, Tokelau, Tonga, Tuvalu, and Vanuatu. Technical assistance to PNG suffered due to COVID 19.

A. Public Financial Management

PFTAC led a multilateral mission in July 2019 with colleagues from UNDP, World Bank, JICA, and the ADB for a full Public Expenditure Financial Accountability (PEFA) diagnostic assessment of the country’s PFM systems, which was published in 2020. In September 2020, a remote mission helped formulate a sequenced and prioritized PFM reform roadmap, building on the findings of the 2020 PEFA assessment and taking on board capacity constraints. The government remains committed to the broader PFM roadmap.

B. Tax Administration and Policy

The Department of the Treasury, with FAD assistance, has developed a 2018-2022 Medium-Term Revenue Strategy (MTRS) of which a comprehensive Revenue Mobilization Framework is a key element. FAD missions1 provided advice on the MTRS framework and content. PFTAC missions2 facilitated the design of a new corporate plan, design and monitoring unit, taxpayer services unit and a large taxpayer office. Funding to support PNG’s MTRS implementation had been sourced through the multi-lateral Revenue Mobilization Trust Fund (RMTF) and included the placement of an IMF resident advisor in Port Moresby (August 2018-June 2021). Support through the RMTF ended in June 2021, with continued capacity development provided through PFTAC. In December 2021, a PFTAC mission focused on further development and introduction of new organizational structure for IRC.

C. Financial Sector Regulation and Supervision.

In 2018 PFTAC and Bank PNG initiated the Supervision Framework Enhancement Program (SFEP), incorporating a Supervision Framework Development strategy and a TA plan. The SFEP covers development and enhancement of risk rating; supervisory action planning; on-site examination; financial analysis; and a review and update of legislation and prudential standards. The SFEP with Bank PNG has been successfully running for three and a half years, with significant development of Bank PNG’s risk-based supervision (RBS) framework, in risk rating and supervisory action planning, and on-site examination and off-site analysis capabilities. In 2021, PFTAC provided TA to review and develop 11 prudential standards including consolidated supervision. The report was completed in August 2021.

D. Economic and Financial Statistics

Support for Real Sector Statistics has been provided in close collaboration with the Australian Bureau of Statistics (ABS). ABS has provided TA on data collection issues including business and household surveys, with temporary repeated secondments of ABS staff to the PNG National Statistics Office (NSO). PFTAC provides on-the-job training and improvement on the production system. Further PFTAC TA on real sector statistics is scheduled for FY23. Government finance statistics and public sector debt statistics TA are supported by PFTAC and the Data for Decisions (D4D) Trust Fund. External sector statistics continue to be supported by the Japan Administered Account for Selected IMF Activities (JSA) for the Asia-Pacific region through October 31, 2023.

E. Macroeconomic Analysis

In January 2019, the Department of Treasury hosted an interagency workshop with participants from the Department of Treasury, the Bank of Papua New Guinea, and the National Statistics Office on Economic and Fiscal Forecasting which was facilitated by the PFTAC macro advisor. In May 2021, a three-week Financial Programing course was conducted by ICD and PFTAC, with the aim of this being part of the long-term adoption of a new Financial Programing model, with further missions planned.

F. Public Debt Management

During October and November 2021, a two-week regional training course provided capacity development on the fundamentals of debt reporting and monitoring. Department of Treasury officials attended the training and gained understanding of the benefits and key requirements of publishing reliable, comprehensive, timely, and accurate debt data.

In November 2021, PFTAC delivered a remote training on financial and loan analysis to Papua New Guinea Department of Treasury officials. Papua New Guinea has access to both a domestic debt market and external financing and CD of officials in financial and loan analysis is part of the foundations for improving debt management practices. The training focused on building capacity in financial and market concepts, debt and liability management operation instruments, loan structures and cashflows, and portfolio risk indicator analysis. Enhancing the foundational knowledge of officials is also fundamental towards Papua New Guinea’s aim to raise overall Debt Management Performance Assessment (DeMPA) scores. The DeMPA is a diagnostic of government debt management practices and institutions.

Information on the Activities of Other IFIs

Information on the activities of other IFIs in Papua New Guinea can be found at:

Statistical Issues

(As of April 2022)

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Papua New Guinea: Table of Common Indicators Required for Surveillance

(As of May, 2022)

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Daily (D), Weekly (W), Monthly (M), Quarterly (Q), Annually (A), Irregular (I); and Not Available (N/A).

Includes reserve assets pledged or otherwise encumbered as well as net derivative positions.

Both market-based and officially-determined, including discount rates, money market rates, rates on treasury bills, notes, and bonds.

Foreign, domestic bank, and domestic nonbank financing.

The general government consists of the central government (budgetary funds, extra-budgetary funds, and social security funds) and state and local governments.

Including currency and maturity composition.

Includes external gross financial asset and liability positions vis-à-vis nonresidents.

Lack of capacity prevented the authorities from providing the data.

1

Cotton (August 2017) and Baunsgaard (September 2017) provided advice on the MTRS framework and content.

2

PFTAC missions in July 2017, December 2017, and September 2018 (STX McNeil) facilitated the design of a new corporate plan, design and monitoring unit, taxpayer services unit and a large taxpayer office.

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Papua New Guinea: 2022 Article IV and the Staff Monitored Program-Press Release; Staff Report; and Statement by the Executive Director for Papua New Guinea
Author:
International Monetary Fund. Asia and Pacific Dept