By Sitati Wasilwa
The 2018/2019 Budget Policy Statement (BPS) that was recently presented in the National Assembly seeks to promote prosperity among Kenyans of all walks of life. The would-be large-scale prosperity is aptly captured by the budget’s theme: “Creating Jobs, Transforming Lives and Sharing Prosperity.”
There is no doubt that socio-economic inclusion is a fundamental tenet that promotes robust economic growth in the long-run, and consequently, structural transformation. Hence, the need for the Executive, through The National Treasury, to align its policy agenda with development blueprints such as the national Vision 2030, East Africa’s Vision 2050, Africa’s Agenda 2063 and the global 2030 Agenda for Sustainable Development.
In pursuit of shared prosperity among the many – the country’s hoi polloi – Cabinet Secretary (CS) Henry Rotich presented a Kshs.3.07 trillion budget to the National Assembly. However, there is discrepancy between the actual amount of the budget and the amount that Mr. Rotich read out in the National Assembly.
Why the Discrepancy?
Playing “safe politics” is the root cause of Mr. Rotich’s lie that the national budget amounts to Kshs.2.556 trillion. The actual amount of the budget is Kshs.3.07 trillion and this implies that there is a difference of about Kshs.514 billion that the CS didn’t offer an explicit explanation about it.
It should be noted that the difference is what constitutes the principal debt amortization and rollovers which in essence refer to the repayment of both the domestic debt and the external debt.
Primary Concerns
With the 2018/2019 Budget Policy Statement being the largest ever in the country’s history, concerns have been raised in regards to raising finances to fund the expenditure, and the chain effect triggered by the financing plans outlined by CS Rotich.
For instance, with a deficit of Kshs.558.9 billion, it is certain that the government will borrow to plug the deficit. It is expected that the government will borrow Kshs.287 billion from external sources and Kshs.271.9 from domestic entities.
Borrowing will automatically impact on the national debt which, according to the debt statistics by the Central Bank of Kenya, stands at Kshs.4.88 trillion. With basic reasoning, it is therefore true to assert that the public debt will be over Kshs.5 trillion in the 2018/2019 financial year.
Treasury has resigned itself to defensive play in view of the rising public debt which it considers to be safe. The regime’s sympathizers have also joined the bandwagon of defending the excessive borrowing and branding the critics of the sky-rocketing debt as “unnecessary alarmists, cynics and irritants.”
One particular line of defence put up by the Treasury and the Executive is that even developed countries have extremely high debts to GDP ratio some to the tune of over 150% and 200% compared to Kenya’s currently at 60%. This is misleading.
A major way of analyzing economic policy is sizing up economic issues and dissecting them as per the given context. Developed countries are able to easily sustain their debt levels because of high economic productivity and the low interest rate repayments pegged on the borrowed finances.
Considering the African context, Ghana courted a debt crisis in 2016 as a result of irresponsible borrowing. Recently in the month of March, Mozambique defaulted on its debt with the public debt to GDP ratio at 128%. This month, the Zambian government has adopted austerity measures in light of the country’s worsening debt crisis.
A stale argument advanced by the Treasury is that in the medium-term and eventually in the long-term, Kenya’s public debt will significantly decrease. But if previous public finance data are to be scrutinized, it seems as if the medium-term and the long-term periods will never materialize as the debt keeps on accumulating and this is the genesis of a debt trap and crisis.
Financing the so-called and much-touted ‘Big Four Agenda’ was a major highlight of the BPS. It is expected that this policy agenda will be financed to a tune of Kshs.460 billion, but a closer look at the budget reveals otherwise; only Kshs.73.75 billion has been allocated to the ‘Big Four’ while the rest is to be expended on the enablers of the ‘Big Four’.
Contents of the Big Four – a vibrant manufacturing sector, food security, universal health coverage, and affordable and descent housing – are not new policy propositions in the country. By the way, these items featured on the policy agenda of the Jubilee administration between 2013 and 2018 that was tainted by plundering.
Expenditure for food security is ridiculous considering the propositions of key benchmarks such as the Malabo Declaration which requires that African governments allocate at least 10% of the public expenditure towards financing the agricultural sector. The Jubilee administration, for the sixth year running, has consistently allocated not more than 5% of the budget for financing agricultural activities.
What is Kenya planning to export and how will it establish a vibrant manufacturing sector if the budgetary allocations for the agricultural sector are lower? Kenya has the capacity and advantage of producing huge amounts of agricultural products and facilitating value addition on them and this can act as a basis for establishing a strong manufacturing sector.
Taxation measures proposed by the Treasury are majorly intended to raise revenue critical in financing the budget. Of great concern, however, is whether the Kenya Revenue Authority will be able to meet the targeted revenue of Kshs.1.74 trillion.
To hit the targeted revenue, Treasury has proposed a series of changes in relation to the country’s tax structure which are highlighted in the Finance Bill set to be presented in Parliament for approval.
In as much as these changes are intended to redistribute income, prevent environmental degradation, protect local industries among other goals, the overarching objective is financing the administration’s over-ambitious budget and servicing the ballooning public debt. This in fact informs the need to expand the tax bracket with the informal sector, betting and gambling activities as well as mobile money transactions being targeted.
Repealing the Banking Amendment Act (2016) that introduced interest rate caps is welcome. The cap on the interest rates is an economic policy that has failed to achieve its intended objective; increasing access to credit through lower interest rates.
However, the proposed measures to protect consumers from predatory and reckless lending by the credit providers as contained in the Financial Markets Conduct Bill, emasculates to some extent the mandate of the Central Bank of Kenya.
The Bill seeks to establish the Financial Markets Conduct Authority (FMCA) which CS Rotich claims that “it will only be limited to protecting consumers in the areas that have not been covered by existing regulators including the Central Bank.” Why not strengthen the existing regulators? Why would public funds and other resources be wasted in setting up the FMCA? FMCA is unnecessary.
Having the budget is one thing while seamless implementation of it is a different issue. Challenges such as corruption and failure to collect the targeted revenue are pitfalls that will deny the many average Kenyans the benefits envisaged in the 2018/2019 BPS; shared prosperity, employment opportunities to be created and transformed lives.
Public Finance History
Three fundamental issues characterize Kenya’s public finance history and trajectory; corruption, low absorption rate of development expenditure, and the failure by Kenya Revenue Authority (KRA) to meet the targeted revenue.
Kenya loses one-third of its budget every year due to corruption. If this is the case, then about Kshs.1 trillion of the 2018/2019 budget will be directed from the public purse to private pockets. Accountability of the spending is a big challenge considering that Parliament itself goes to bed with the Executive thus jeopardizing the independence of the former.
Unimportant allocations and expenditures are pursued with the aim of wealth accumulation at the expense of initiating development projects. What worsens the situation is the looting that takes place in various government agencies and institutions. The Office of the Auditor General attempts to raise queries on the unaccounted for spending but Parliament and the Executive have failed spectacularly in providing the necessary political will.
Revenue collection is characterized by unrealistic targets that KRA is expected to attain. This stems from the massive deficits that Treasury has presided for the last five financial years. For instance, in the 2016/2017 financial year, the shortfall in revenue amounted to Kshs.66.64 billion.
For the current fiscal year 2017/2018, the situation will be similar bearing in mind that as by December 2017, as documented in the Post-Election Economic and Fiscal Report, there was a shortfall in the total cumulative revenue by Kshs.68.3 billion. The 2018/2019 financial year will not be different in any way.
Absorption rate of the development expenditure is poor with finances allocated for various development projects embezzled. Stalled infrastructural projects are an indication of the poor absorption rate of the finances set aside for development. With Kshs.671.6 billion allocated for development expenditure, perhaps only 50% of it will be utilized.
Regular and annual commentaries on the Budget Policy Statements should take into consideration the hits and misses of the spending of previous financial years.
The recently read budget will not be effective; the public debt is set to increase, various taxes are set to go up and of course shortfalls in revenue are expected. This is not a budget for the many considering the high and exaggerated expenditure. And since a huge chunk of it will be looted, then there is nothing to smile about.