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March 2017 Volume 6 (1)

Bridging the Infrastructure Gap

Despite an increasing trend in public investment in low-income developing countries (LIDCs) since the 2000s, the quantity and quality of infrastructure is still weak, with persistent infrastructure gaps hampering growth. Upgrading infrastructure is a key pillar in many countries’ national development strategies. To overcome the lack of cross-country data on infrastructure investment, IMF staff has conducted a survey among country teams and authorities. According to the survey data, the median level of investment in infrastructure was around 3 percent of GDP in 2011–14, but it dropped below 2½ percent in 2015, as commodity exporters were hit by falling export prices. Frontier markets—aided by easier access to financing and stronger economic prospects—had somewhat higher levels of investment, while public investment was relatively low in fragile states, reflecting limited fiscal space and weak institutional capacity.

Public saving is a major source of investment financing, even though it declined significantly after the global financial crisis, leading to an increased reliance on borrowing. LIDCs received nearly $17 billion in project finance from multilateral development banks and OECD members in 2014, mostly in the form of grants and concessional loans directed to the transportation and energy sectors. Cross-border bank lending has also become an important source of infrastructure financing—mostly for energy projects—even though it has declined in recent years alongside the drop in commodity prices.

The path forward to expand and improve infrastructure is not easy—but finding that path is critical for attaining Sustainable Development Goals. Over the last two years, public debt levels have risen, external financing conditions have tightened, and growth prospects have weakened for the LIDCs. These developments create a challenging environment for infrastructure investment. The IMF survey confirms that limited financing—due to already high debt levels and low revenues—together with limited absorptive capacity, is constraining the much-needed scaling-up of public investment in economic infrastructure.

A recent IMF Policy Paper examines these and other challenges and discusses how the IMF is helping overcome them for its LIDC members.

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Macroeconomic Developments and Prospects in LIDCs

The subdued global economic environment, with a sharp downward adjustment in commodity prices, especially fuel prices (only partially reversed in recent months), is posing a significant threat to economic growth in LIDCs. A recent IMF Policy Paper assesses the extent to which LIDCs have been able to adjust to the “lower for long” commodity prices. It finds the adjustment to be incomplete, though with significant variation in performance and prospects across countries. Fuel exporters are the worst hit due to the large negative terms-of-trade shock. The October 2016 Regional Economic Outlook for Sub-Saharan Africa also flags that growth in sub-Saharan Africa has decelerated sharply in 2016 to its lowest level in more than 20 years. In the context of lower for long commodity prices, it urges a prompt enactment of policy adjustment in the hardest-hit countries, based on a comprehensive and internally consistent set of policies. Countries that are still growing rapidly should rebuild buffers to stem the increase in public debt. A special focus is also drawn on the need to enhance resilience to natural disasters in the region through diversification, adaptation, and insurance.

The incomplete policy adjustment and the deteriorating growth prospects have resulted in rising fiscal and financial stresses, even though, as noted in the October 2016 Fiscal Monitor, public debt levels in most LIDCs are lower than in other country groups. In the worsened economic environment, striking a balance between financing infrastructure spending and preserving debt sustainability has become more challenging. The IMF offers tools to navigate this trade-off, and also provides financial resources to maintain a stable and sustainable macroeconomic position consistent with durable poverty reduction and growth. A recent paper – "Financing for Development: Enhancing The Financial Safety Net for Developing Countries – Further Considerations" – clarifies guidance on combining concessional financing with other Fund resources and assesses adequacy of precautionary support.

Macro-Structural Policies and Income Inequality

Despite sustained economic growth and rapid poverty reduction, income inequality remains stubbornly high in many LIDCs. This pattern is a concern as high levels of inequality can impair growth sustainability and macroeconomic stability, thereby also limiting countries’ ability to reach the Sustainable Development Goals. It is therefore critical to understand how policies aimed at boosting economic growth affect income inequality. Using empirical and modeling techniques, an IMF Staff Discussion Note finds that macro-structural policies aimed at raising growth payoffs in LIDCs can have important

distributional consequences, with the impact dependent on both the design of reforms and country-specific characteristics. While there is no one-size-fits-all recipe, the note explores how governments can address adverse distributional consequences of reforms by designing policy packages that are both pro-growth and inclusive.

Gender Equality

The IMF hosted a one-day conference on Fiscal Policies and Gender Equality on November 7, 2016. The opening session featured a panel discussion among Ms. Christine Lagarde (IMF); Ms. Phumzile Mlambo-Ngcuka (UN Women); Ms. Laura Tyson (University of California-Berkeley); and Ms. Julie Delahanty (Oxfam Canada). Ms. Lagarde discussed how targeted spending on gender equality promotes women’s empowerment and benefits society as a whole, and emphasized the need to actively shape fiscal policy to achieve gender equality goals. The IMF can play an important role through its research and policy advice on the macroeconomic policy levers that influence women’s economic empowerment. Panelists in other sessions highlighted the issue of filling data gaps, along with discussions on how governments, as major employers, can lead in the move towards gender equality. IMF staff also presented the recently completed global survey of gender budgeting.

MD’s Speech at the Center for Global Development

Speaking at the Center for Global Development, the IMF’s Managing Director, Ms. Christine Lagarde, focused on the development agenda for LIDCs, underscoring the need for greater global cooperation in the face of inward-looking policies. While emphasizing the big progress made by LIDCs in poverty reduction and economic growth, she highlighted three key challenges: demographic pressures, climate change, and the risk of violent conflicts. The policy mix to meet these challenges will have to start with sound macroeconomic management, with a long-term focus on (i) raising resources for development, through broadening the tax base, increasing the level and effectiveness of aid, and reducing transaction costs for remittances; (ii) improving infrastructure by scaling up public investment in a sustainable, transparent and cost-effective manner; and (iii) achieving inclusive growth by raising human capital levels through investments in health and education, improving gender equity, and promoting financial inclusion. Ms. Lagarde emphasized the role the IMF and the World Bank have played and will continue to play in supporting the LIDCs.


Macroeconomic Developments and Prospects in LIDCs

External conditions represent a drag on macroeconomic performance for several LIDCs as commodity prices are still well below the 2014 levels.

Growth slowed markedly in 2015 and 2016, especially in commodity exporters, but is expected to recover gradually starting in 2017.

Commodity prices
(Index: 2010=100)

Selected Macroeconomic Indicators
(PPP-GDP weighted averages)


Worsening external conditions are reflected in rising borrowing costs, as bond spreads have increased significantly, especially in commodity exporters.

Adverse macroeconomic conditions have translated into rising debt levels and an increase in the number of countries at moderate or high risk of debt distress.

Sovereign Bond Spreads in Frontier Markets
(Basis points)

Evolution of Risk of Debt Distress
(In percent of total number of LIDCs)

Sources: World Economic Outlook, January 2017 update; JP Morgan; FRED; IMF LIDC Report 2016; and IMF staff estimates.
Notes: The sample of frontier market LIDCs comprises Bolivia, Mongolia, Mozambique, Nigeria, and Zambia (commodity exporters), Cote d’lvoire, Ghana, Kenya, Senegal, Tanzania, and Vietnam (diversified exporters). The classification of commodity exporters and diversified exporters is referred to LIDC report (2016).


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