Understanding poor-country debt: How do poor countries finance their development?
OPINIONS | Shantha Bloemen
2018-11-16 16:23 GMT+8
Editor's note: Shantha Bloemen has worked in international development for more than two decades. The article reflects the author's views and not necessarily those of CGTN.
There has been much news lately about the impact of debt in poor countries. China has borne the brunt of the coverage, being criticized for a strategy labeled "debt diplomacy".
Focusing on the big infrastructure projects, from high-speed trains in East Africa to ports in Sri Lanka, the critics argue that these ambitious endeavors are financially nonviable and leave countries vulnerable to China's influence.
While debate and discussion is needed, the issue of debt is not new for poor countries, especially those in Africa. Much of the recent analysis has been a historical, and a large part of it is infected with bias towards the lender.
It is not surprising that after decades of being the masters of lending and the power that accrues with it, many in the West have been rattled by China's growing position of financier in the global South.
The China-Africa Private Economic Cooperation Summit opens at the Hangzhou International Expo Center in Hangzhou, east China's Zhejiang Province, September 6, 2018. /VCG Photo
The impact of China's disruption is felt both in the conditions and size of its loans. Instead of fueling consumption, the outcomes have been new roads, trains, bridges, airports, and parliaments.
For many poor countries, whose infrastructure was in decay with cities overwhelmed by population growth and congestion and transport expensive and limited, the prospects of finance to build was understandably welcome.
A recent report by the Jubilee Debt Campaign demonstrates that many African countries indeed face a growing debt burden. It highlights that external debt payments have doubled in the last two years from an average of 5.9 percent of government revenue to 11.8 percent in 2017.
Yet, only 20 percent of that debt is owed to China, while a much larger 35 percent is owed to multilateral institutions, such as the World Bank, and 32 percent to private creditors. The International Monetary Fund (IMF) estimates that 22 African countries, up from 10 in 2013, now have unsustainable debt levels of more than 50 percent of their gross domestic product.
For most African countries, debt has been part of their life since independence. In 1999, when working on a documentary on the impact of third world debt in Zambia, I interviewed then President Kenneth Kaunda.
He recounted the challenge at independence in 1964 of how they were going to build a nation with only a handful of college graduates and an economy designed to benefit the former colonial master. Colonized for their copper and dependent on it as their major export at the time, Zambia needed to build new industries and grow its economy while fostering its human capital and it was proving difficult.
The launching ceremony of the research report on China's aid to Africa's agricultural projects was held at the United Nations Headquarters in New York, US, on October 29, 2018. /VCG Photo
When the price of oil escalated in the 1970s, the oil-dependent and landlocked country had to borrow financing to meet its energy needs. While the IMF and World Bank were happy to lend at the time, most of it was spent on keeping the economy afloat.
This was the time of Cold War politics, so the country was gripped with the additional burden of being the frontline state against the wars going on in apartheid South Africa and Southern Rhodesia at the time.
By the 1980s, Zambia was crippled by enormous debt and had no choice but to comply with the structural adjustment and the harsh austerity that the IMF and World Bank imposed on many countries in a similar top-down approach.
The formula of structural adjustment forced governments to balance their budgets by cutting government spending, including for health and education, impose user fees on social services and open up their economies to foreign investment. The toll on human development for the majority was enormous.
Debt relief for most of the poorest countries, like Zambia, only came two decades later due to enormous pressure from a coalition of churches, civil society, and activists, called Jubilee 2000.
In 2005, the Group of 8 agreed to write off 77 billion US dollars for 18 of the world's poorest and most indebted countries. They agreed to give countries a fresh start and create a fairer system for poor countries to finance their development.
Zambia had a chance to arrest the more than two decades of worsening social indicators, like primary school enrollment and child mortality, when the 6.7 billion US dollars of debt was canceled by public institutions under the Highly Indebted Country Initiative (HIPIC).
Yet, the promised foreign direct investment – a reward for the austerity – did not materialize, and the country's efforts to diversify the economy have not led to the growth they needed to sustain their population or balance their budget. While it gave temporary relief, it did not solve the macroeconomic challenge of how to finance the development of the country.
Today, while we need to be wary of poor countries again carrying loans they can never pay back and spending more on servicing interest payments than on desperately needed services for their people, the big question is, how, without borrowing, can poor countries invest in the infrastructure and human capital they need to grow their economies?
China's entry into the role of financier, especially since 2006, represents what is possible on the continent when financing for infrastructure is available.
The Beijing Summit of the China-Africa Cooperation Forum held its opening ceremony in the Great Hall of the People, Beijing, China on September 3, 2018. /VCG Photo.
After decades of decline, the very act of building provided momentum to believe that Africa was no longer going to be left behind. While not all the infrastructure projects may have been a priority or will bring an instant economic return, they illustrate the possibility of transformation and create new aspirations for the future of the continent.
Unhindered by a colonial or paternalistic attitude, the Chinese and their long-term perspective informed from their experience of transforming their country and lifting millions out of poverty, know how to think big and envision a continent united by high-speed trains and new transport hubs.
The irony is that, despite their vocal concerns from the West about China's debt diplomacy, the United States has launched its own infrastructure fund, BUILD, and the Australians have just announced a new infrastructure lending facility for the Pacific. This is potentially all good news for poor countries who need infrastructure but also access to cheaper financing.
In Africa there is much demand for better roads, bridges, and infrastructure – the available financing is only a fraction of what is ultimately needed for large-scale economic transformation. The African Development Bank estimates the continent's infrastructure needs amount to 130–170 billion US dollars a year, with a financing gap in the range 68–108 billion US dollars.
The problem is that without large-scale catalytic investment, the economic return needed may not materialize quickly enough to repay the loans on the terms the creditors demand.
There is also much to do in Africa to cope with the demands of climate change, provide jobs and opportunities for growing young populations and to build sustainable viable economies. Long-term, visionary and patient investment and financing will be vital to this success.
African governments need to do better to attract and manage investment and financing. Countries like Ethiopia and Rwanda demonstrate how better domestic political leadership, a national long-term vision, tackling corruption head-on, investing in human capital through quality and accessible health care and education, creating supportive policies for local business can help bring economic return from infrastructure investment.
The blame game between creditors needs to stop. It is not only counterproductive but distracts from the more important question: How do we provide poor countries fair, sustainable and catalytic financing so they have a chance to develop and to create prosperous and sustainable economies?
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