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#382: GOH's Letter of Intent to IMF (fwd)
From: Max Blanchet <MaxBlanchet@worldnet.att.net>
FROM IMF's Web Site (www.imf.org)
The following item is a Letter of Intent of the government of Haiti,
which describes the policies that Haiti intends to implement in the
context of its request for financial support from the IMF. The document,
which is the property of Haiti, is being made available on the IMF
website by agreement with the member as a service to users of the IMF
website.
Port-au-Prince, Haiti
November 19, 1998
Mr. Michel Camdessus
Managing Director
International Monetary Fund
Washington, D.C. 20431
Dear Mr. Camdessus:
1. Hurricane Georges passed through Haiti on the night of September 22
and early in the morning of September 23, 1998, causing loss of human
lives, population dislocation, damage to infrastructure, and substantial
loss of agricultural output and livestock. The destruction could
seriously set back the government?s capacity to implement financial
policies to lower inflation and undertake urgently needed structural
reforms to improve governance and remove Haiti?s serious structural
bottlenecks to sustained economic development.
2. The Haitian government?s disaster relief and reconstruction effort
is directed at providing emergency shelter, food, water, and medicine to
the affected population, while rebuilding priority economic and social
infrastructure that was destroyed and rehabilitating the productive
capacity of the most severely affected regions. The costs associated
with these activities are substantial and cannot be met by domestic
efforts alone. The international community has responded positively to
Haiti?s request for assistance, and some donors and creditors have begun
to support disaster relief efforts with technical and financial
assistance. To further mitigate the adverse impact of Hurricane Georges
on Haiti?s fragile balance of payments and help meet the immediate
financing needs without seriously depleting Haiti?s external reserves,
the government of Haiti hereby requests from the IMF a purchase
equivalent to 25 percent of quota under the IMF procedures on emergency
assistance for natural disasters. To support this request, the
government has developed an economic program covering FY 1998/991 aimed
at maintaining macroeconomic stability and making progress in the
structural area while efforts are being made to resolve the political
crisis. Satisfactory performance under the program, which the government
has requested IMF staff to monitor, is expected to facilitate the
disbursement of additional aid from donors and could provide a basis for
resuming discussions on an ESAF-supported program once a new government
is installed.
I. Background and Performance in FY 1997/98
3. The first annual ESAF arrangement covering FY 1996/97 expired
without completion of the mid-term review as a political crisis that led
to the resignation of the prime minister in June 1997 adversely affected
the implementation of structural reforms, the disbursement of external
aid flows, and the economic recovery. While attempts to reach a
political settlement continued, an economic program covering FY 1997/98
(which the government asked IMF staff to monitor) was put in place in
April 1998 to help maintain financial discipline, make progress in the
structural area, facilitate some aid disbursements, and establish a
basis for an early start of discussions on a program that could be
supported by the second annual ESAF arrangement once a new government
was installed.
4. Good progress was made in macroeconomic stabilization and structural
reforms under the FY 1997/98 staff-monitored program. Twelve-month
inflation declined from 17 percent in September 1997 to 8.3 percent in
September 1998 (compared with 12 percent under the program), and output
growth is estimated at around 3½ percent (2 percent under the program)
as a result of strong export growth and a recovery in agriculture due to
better weather conditions. Net international reserves increased by US$33
million (compared to no change under the program). The central
government deficit was contained to 1.3 percent of GDP (1.1 percent in
the program), as revenue shortfalls experienced in the first half of the
fiscal year were more than made up in the second half mainly as a result
of steps taken in July 1998 to strengthen the administration of fuel
excise taxes and tighten expenditure control procedures.
5. On the structural front, progress was made in some areas in the
context of existing legislation. The civil service downsizing (CSD) law
was published in the official gazette in mid-May 1998, and under the
program, targets were established for the departure and retraining of at
least 5,000 civil servants (about 10 percent of government employment)
by end-September 1998. In the event, as of end-October 1998, some 5,200
employees had been separated and indications are that about 200 more
employees will be leaving the civil service by mid-December 1998. Also,
in conjunction with the implementation of the CSD law, physical
verification procedures for wage payments were implemented in May?June
1998, resulting in the elimination of fraudulent wage payments related
to some 2,900 employees from the government payroll. Budgetary savings
from these actions are estimated at about ½ percent of GDP on an annual
basis.
6. During FY 1997/98, progress also was made toward the modernization
of public enterprises. The flour mill was divested and procedures for
the capitalization of the cement company were finalized (the transaction
awaits the signature of the prime minister). Also, with assistance from
the World Bank, the IDB, and U.S. AID, technical work continued in the
preparation of the main public enterprises (the airport and the seaport,
as well as the electricity and telephone companies) for their
modernization.
7. The implementation of financial sector reforms continued. New
prudential regulations applicable to the banking system were put in
effect through the issuance and implementation of circulars on loan
classification and provisioning, loan concentration, internal controls,
extension of internal audit standards to branches, and standardization
of financial statements provided by banks. Proposals for phasing in
capital adequacy requirements over a three-year period were discussed
with the commercial banks with a view to issuing them by end-1998. Also,
the previous management of the large, state-owned Banque Nationale du
Credit (BNC) was replaced in April 1998 by an intervention team that has
begun to restructure it.
II. Impact of the Hurricane
8. Although a full assessment of the impact of Hurricane George has not
yet been completed, it is clear that the hurricane has inflicted
substantial human suffering and financial losses, and caused extensive
damage to the agricultural sector and the infrastructure. The latest
reports indicate about 240 persons dead, and more than 324,000 directly
affected by damage to or destruction of their homes, and dislocation
from flood-prone areas. Damage to the country?s infrastructure,
including roads, bridges, the port of Port-au-Prince, irrigation
systems, as well as schools, hospitals and other buildings, has been
substantial. The agriculture sector was most severely affected, mainly
as a result of substantial damage to rice, plantain, beans, coffee, and
sugarcane crops, as well as losses of livestock. In particular, in the
Artibonite Valley (the country?s breadbasket) heavy flooding destroyed a
substantial part of the September rice crop; furthermore, the next rice
crop is threatened by lack of inputs and the poor state of irrigation
infrastructure. Preliminary reports estimate the total losses, including
the loss of crops and livestock and damage to infrastructure, at about
US$80 million (1.9 percent of GDP). As a result of hurricane-related
damages, it is projected that output growth in 1998/99 could be about 1?
2 percentage points lower than would have been otherwise.
9. Hurricane Georges also will adversely affect Haiti?s budgetary and
balance of payments position. It is estimated that the fiscal impact
would amount to some G 580 million (0.8 percent of GDP) in FY 1998/99
(of which about two-fifths is included in the government budget and the
remainder is direct donor-financed expenditure) largely reflecting
additional expenditure needed for relief and reconstruction operations.
The external current account deficit (excluding grants) is estimated to
widen by some US$37 million (0.9 percent of GDP). This deterioration is
mainly on account of higher food imports and imports associated with
relief and reconstruction operations, including infrastructure repairs;
exports of agricultural products, which account for a small proportion
of total exports, also are expected to be adversely affected. Donor
emergency assistance announced so far totals about US$22 million (½
percent of GDP), mostly humanitarian assistance and food aid from the
U.S. government and the reprogramming of some existing loans from the
IDB.
III. Policy Response
10. Despite the setback caused by Hurricane Georges, the government
remains committed to ensuring macroeconomic stability and pressing ahead
with key structural reforms in a manner consistent with existing
legislation. To that effect, it has developed an economic program
covering FY 1998/99 which is predicated on an assumed real GDP growth of
around 2 percent and aims at maintaining an inflation rate of about 8?10
percent while containing the loss of official net international reserves
to US$10 million. The program envisages a financing gap of about US$37½
million (after the IMF?s emergency assistance), which is expected to be
met through support from Haiti?s donors.
11. The fiscal program aims at holding the central government budget
deficit (including the high priority expenditures associated with
hurricane-related reconstruction and the costs of structural reforms) to
G 1,256 million (1.7 percent of GDP) in FY 1998/99. In order to meet the
deficit target, expenditure will be kept under tight control and steps
will be taken to strengthen tax collection. Thus, the program would
envisage continued implementation of the cash management and monthly
budget allocation system that was put in place toward the end of FY
1997/98 so as to limit monthly government outlays to monthly revenue
collections and programmed financing. To formally give effect to this
arrangement, a protocol will be signed by the Ministry of Economy and
Finance and the Bank of the Republic of Haiti by early December 1998.
The wage bill will be kept under control by tightening hiring procedures
and the government will abstain from granting across the board wage
increases to civil servants. However, selective wage increases will be
phased in in the context of the implementation of donor-backed sectoral
reforms to attract and retain qualified personnel, and improve
efficiency in service delivery. Also, steps will be taken to restrict
the use of ministerial discretionary accounts ("comptes courants"),
restrain nonreconstruction related capital outlays, and rehabilitate the
regular requisition procedure for spending (consistent with IMF
technical assistance recommendations).
12. On the revenue side, efforts to increase tax collection and enhance
tax administration will continue, including through the collection at
customs of the vehicle registration tax and the excises on imports of
alcoholic beverages and tobacco; the implementation of steps to
strengthen the large taxpayer unit (UGCF) and the Customs Office; and
tightening of the administrative procedures for granting tax exemptions
and limiting the granting of discretionary exemptions, in line with IMF
technical assistance recommendations.
13. The program envisages that the public enterprises will restrain
their capital spending so as to refrain from using domestic financing as
was the case in FY 1997/98. The program incorporates increases in
interest payments by the government on its debt to the central bank to G
22 million a month beginning in October 1998.
14. In the context of the managed floating exchange regime, monetary
and credit policies will be set in line with the program?s inflation and
reserves objectives during FY 1998/99. For this purpose and in
accordance with the program?s performance indicators on the central bank
?s net domestic assets and net international reserves, liquidity will be
controlled mainly through the placement of central bank bonds with
interest rates that would remain positive in real terms. Also, the
provision of new credit by the state-owned banks, particularly the BNC,
will continue to be strictly limited. It is expected that satisfactory
performance under the program would allow a substantial lowering of the
central banks? intervention interest rates during the fiscal year.
15. The government will conclude the downsizing of the civil service by
mid-December 1998 and will initiate the implementation of administrative
reforms and institutional strengthening of the public sector with
technical and financial assistance from donors. In order to help
alleviate poverty and improve governance, the government will take steps
to raise efficiency in the delivery of justice and security, health and
education, and infrastructure rehabilitation and maintenance. These
steps will be fully specified over the next three months in consultation
with the donors and creditors involved in each sector.
16. Technical work toward the modernization of the main public
enterprises (airport, port, and the electricity and telephone companies)
will continue. With assistance from the World Bank, the IDB, and U.S.
AID, specific actions will be taken including the design of plans for
the downsizing of employment, the transfer of certain enterprise
liabilities to the government, putting in place regulatory frameworks,
the start of bidding processes for the divestment of the enterprises
under various modalities, and the selection of winning bidders.
17. As regards financial sector reforms, the strengthening of banking
supervision and prudential regulations will continue with technical
assistance from the IDB and the IMF and, as part of this process,
regulations on banks? capital adequacy requirements will be issued by
end-December 1998. Steps have been taken to bolster the financial health
of private commercial banks. Also, an action plan for the restructuring
of the BNC will be drawn up by end-February 1999 with technical
assistance from the IMF and the IDB. The plan will include, inter alia,
proposals for an orderly downsizing of employment and the number of
branches, strengthening the managerial and operating controls of the
bank, and improving lending operations and loan recovery. A decision on
the modality and the level of recapitalization of the bank will be taken
by end-April 1999 with a view to its eventual divestment.
18. The government will not impose restrictions on payments and
transfers for international transactions, introduce new or intensify
trade restrictions for balance of payments purposes, resort to multiple
currency practices, or enter into bilateral payments agreements
incorporating restrictive practices with other IMF members. Haiti will
consult with the IMF periodically, in accordance with the IMF?s policies
on such consultations, concerning the progress made by Haiti in the
implementation of policies and measures designed to address the country?
s balance of payments difficulties.
19. To help monitor performance under the program, the government has
established quarterly performance indicators for end-December 1998, and
end-March, end-June, and end-September 1999, as specified in attached
Table 1, on net international reserves and net domestic assets of the
central bank; net bank credit expansion to both the nonfinancial public
sector and the central government; the government wage bill; arrears on
external public debt; and the contracting and guaranteeing of
nonconcessional external loans. Also, the government has established
structural benchmarks in the following areas: tax collection; government
expenditure control; and the modernization of public enterprises and the
financial sector, as specified in attached Table 2. Structural
benchmarks in the areas of justice and security, and education and
health will be specified by end-February 1999 in consultation with Haiti
?s donors and creditors. The government intends to review with IMF staff
the progress made in implementing the program in February, May, and
August 1999.
Very truly yours,
/s/
------------------------------------------------------------------------
Fred Joseph
Minister of Economy and Finance /s/
------------------------------------------------------------------------
Fritz Jean
Governor of the Bank of the Republic of Haiti
------------------------------------------------------------------------
1Haiti's fiscal year runs from October 1 to September 30.
Table 1. Haiti: Quantitative Benchmarks, December 1998-September 1999
Estimated
Stock at
End-Sep. 1998 1999
Dec. 1998Mar. JuneSep.
------------------------------------------------------------------------
(Maximum cumulative change from
end-September 1998)Net domestic credit to the nonfinancial
public sector1 (in millions of gourdes)5,963362610 833950 Net
domestic credit to the central
government (in millions of gourdes)16,173342600 833950 Net domestic
assets of the central bank
(in millions of gourdes)1,2339180269 322339 Arrears on external
public debt3000 00 Publicly contracted or guaranteed
nonconcessional external loans
(in millions of U.S. dollars) Up to one year4,5...00 00 Over
one-year maturity5...00 00 (Minimum cumulative change from
end-September 1998)Net international reserves of central bank
(in millions of U.S. dollars)1,61905-5 -10-10 Memorandum item:
Government current revenue
(in millions of gourdes)7...1,6073,084 4,5355,791 (Maximum
cumulative level from
end-September 1998)Government wage bill (in millions of gourdes)7...840
1,573 2,3063,040
------------------------------------------------------------------------
Sources: Ministry of Finance; BRH; and Fund staff estimates.
1Benchmarks on the net domestic assets of the BRH and net domestic
credit to the central government and to the nonfinancial public sector
will be adjusted upward by any quarterly shortfall in external budgetary
financing set forth under the program baseline (at actual exchange
rates) provided the programmed expenditures for hurricane relief and
structural reforms are carried out; the benchmarks for the net
international reserves of the BRH will be adjusted downward by the
equivalent amounts in U.S. dollars. The program provides for G 348
million of expenditure on structural reforms (completion of civil
service downsizing and separation payments for restructuring of public
enterprises and the BNC); if the cost of these reforms is below the
programmed level, the benchmarks will be adjusted accordingly. The
benchmarks will be adjusted for any cumulative excess external budgetary
financing above the baseline unless it is used to finance higher than
programmed hurricane relief and reconstruction, separation payments
under the civil service reform or public enterprise restructuring,
higher than programmed capital spending, or payment of up to G 40
million of domestic arrears.
2Net domestic assets of the BRH is defined as the difference between the
central bank's net international reserves and its currency in
circulation. The benchmarks on net domestic assets are evaluated at the
average exchange rate for the respective quarters.
3Continous basis.
4Excludes normal import-related credits.
5Concessional loans are defined as those that provide a grant element of
at least 35 percent based on the appropriate OECD's commercial interest
reference rates (CIRRs). The benchmarks exclude possible external
borrowing up to US$20 million by TELECO to finance planned investments.
6Defined as the difference between the central bank's gross foreign
assets (comprising gold, special drawing rights, all claims on
nonresidents, and claims in foreign currency on domestic financial
institutions) and reserve liabilities (including liabilities to
nonresidents of one-year maturity or less, use of Fund credit, excluding
Trust funds, and any revolving credit from external financial
institutions). Swaps in foreign currency with domestic financial
institutions will be excluded from the net international reserves. For
purposes of the NIR target, the gross foreign assets of the BRH are
adjusted to exclude foreign currency deposits of the domestic commercial
banks.
7Not benchmarks.
Table 2. Haiti: Structural Benchmarks, October 1998?September 1999
October?December 1998January?March 1999April ?June 1999July ?September
1999 Public expenditures managementSigning and implementation of a cash
management protocol (early Dec. 1998).
Agreement with the CSCCA for the extension of the procedures for the
request for the replenishment of the "comptes courants" (mid?-Dec.
1998).
Publication of a circular by the ministry of finance authorizing the
above-mentioned extension (Dec. 1998).
Extension of the procedures for the request for the replenishment of the
"comptes courants" to the economic sector (Jan. 1999).
Extension of the procedures for the request for the replenishment of the
"comptes courants" to the socio-cultural sector (Feb. 1999).
Extension of the procedures for the request for the replenishment of the
"comptes courants" to political sector and "other expenditures" of the
central government (Mar. 1999).
Elaboration of a procedure for improving the monitoring of capital
expenditure (Sept. 1999). Strengthening of tax revenueCollection of the
vehicle registration tax at customs at the time of importation (Dec.
1998).
Collection of excise duties on imported tobacco and alcoholic beverages
at customs (Dec. 1998).
Draft a circular granting a delegation of daily operational powers of
the director general of taxes to the head of the UGCF (Dec. 1998).
Increase the financial resources allocated to the UGCF (Dec. 1998).
Financial sector reformIssuing of a circular on banks? capital adequacy
requirement (Dec. 1998).Design a plan for the restructuring of the BNC
(Feb. 1999).Agreement with the BRH on the modality and level of
recapitalization of the BNC and the BPH (Apr. 1999).Reduction of the
number of employees of the BNC consistent with the restructuring plan
(Sept. 1999). Civil service reform and sectoral policies Completion of
the civil service downsizing (mid-Dec. 1998).
Start the updating of the existing regulations regarding the procedures
for hiring civil servants (Dec. 1998).
Agreement with the European Union on the specific measures for the
reform of the ministries of education and health (Dec. 1998).
Agreement with Canada on the specific measures for the reform of the
ministry of justice (Jan. 1999).
Implementation of a procedure for control of hiring and defining the
institution in charge of this control as well as penalties in case of
violation (Jan. 1999).
Implementation of the specific measures (to be determined) in the
ministries of justice, education, and health. Implementation of the
specific measures (to be determined) in the ministries of justice,
education, and health. Public enterprises reform
Elaboration of a plan for reducing the number of employees of the port
authority (June 1999).
Elaboration of a plan for reducing the number of employees of the
electricity company (June 1999).
Start the implementation of the plan for reducing the number of
employees of the port authority (Sep. 1999).
Start the implementation of the plan for reducing the number of
employees of the electricity company (Sep. 1999). External financial
assistanceEmergency assistance from the IMF.
Possible disbursement of budget support from Taiwan, Province of China.
Possible disbursement of the budget support from Canada and the European
Union.