CPD Dialogue on Analysis of the National Budget FY2016

বাাংলাদেদের উন্নয়দের স্বাধীে পর্যাদলাচো
www.cpd.org.bd
CPD Dialogue
Analysis of the National Budget FY2015-16
Dhaka: 13 June 2015

CPD IRBD 2015 Team
CPD (2015): Analysis of the National Budget FY2015-16 2
Dr Debapriya Bhattacharya, Distinguished Fellow, CPD and Professor Mustafizur Rahman,
Executive Director, CPD were in overall charge of preparing this report as the Team Leaders.
Lead contributions were provided by Dr Khondaker Golam Moazzem, Additional Research
Director and Mr Towfiqul Islam Khan, Research Fellow, CPD.
Valuable research support was received from Mr Md. Zafar Sadique, Senior Research
Associate; Mr M Shafiqul Islam, Additional Director Admin. & Finance; Ms Meherun Nesa,
Research Associate; Ms Farzana Sehrin, Research Associate; Ms Umme Shefa Rezbana,
Research Associate; Ms Mahenaw Ummul Wara, Research Associate; Mr Md. Naimul Gani
Saif, Research Associate; Mr Mohammad Afshar Ali, Research Associate; Ms Shahida Pervin,
Research Associate; Mr Mostafa Amir Sabbih, Research Associate; Ms Nashia Zaman,
Research Associate; Mr Ariful Islam, Research Associate; Ms Refaya Rashmin, Research
Associate; Mr Estiaque Bari, Research Associate, Mr Uttam Kumar Paul, Deputy Director,
Accounts; Mr Md. Shamimur Rohman, Senior Accounts Associate; Mr Muhammad Zillur
Rahman, Accounts Associate; Mr Muhammad Nabil, Dialogue Associate; Mr Ziaul Hoque
Zia, Programme Associate (Accounts); Ms Mubash Shira Rahman, Research Intern; and Mr
Aqmar Mallick, Research Intern, CPD.
Mr Towfiqul Islam Khan was the Coordinator of the CPD IRBD 2015 Team.

Acknowledgement
The CPD IRBD 2015 Team would like to register its sincere gratitude to Professor
Rehman Sobhan, Chairman, CPD for his advice and guidance
The Team gratefully acknowledges the valuable support provided by Ms Anisatul Fatema
Yousuf, Director, Dialogue and Communication Division, CPD and her colleagues at the
Division in preparing this report. Contribution of the CPD Administration and Finance Division
is also highly appreciated. Assistance of Mr A H M Ashrafuzzaman, Deputy Director (System
Analyst) and Mr Hamidul Hoque Mondal, Senior Administrative Associate is particularly
appreciated
Concerned officials belonging to a number of institutions have extended valuable support to the
CPD IRBD 2015 Team members for which the Team would like to register its sincere thanks
The CPD IRBD 2015 Team alone remains responsible for the analyses, interpretations and
conclusions presented in this report

Criteria for assessing the budget FY2016
 Five criteria for assessing the budget have been deployed to assess the efficacy of
the recent budget experiences:
1. Clarity and credibility - Were the budgets designed within clear and credible
limits for fiscal policy?
2. Alignment with medium-term priorities- Were the budgets closely aligned
with the medium-term strategic priorities of government?
3. Efficacy of capital budgeting framework- Does the capital budgeting
framework meet the national development needs in a cost-effective and coherent
manner?
4. Justification of the allocations- Did the budgets present a comprehensive,
accurate and reliable account of the public finances?
5. Quality of proposed management and monitoring of the plan- Is there a
concrete plan to manage and monitor the commitments made in FY2016 Budget?

Issues flagged for discussion
Macroeconomic Context
 How did the present context inform the budget for FY2016?
 How realistic is the macroeconomic outlook proposed in FY2016 budget?
Fiscal Framework: Budgetary Allocation and Financing
 Is the fiscal framework losing credibility?
 How challenging will attainment of revenue target in FY2016 be?
 Are agriculture and social sectors marginalized within the public expenditure framework for
FY2016?
 Can ADP for FY2016 be implemented without addressing the structural bottlenecks?
 Is the foreign aid requirement for FY2016 too ambitious?
Fiscal and Other Budgetary Measures
 What are the ‘good’ and ‘not-so-good’ fiscal measures proposed in the budget FY2016?
 Why should we continue the incentives for legalising undisclosed money?
 What is the revenue implication in FY2016 of the significant duty restructure?
 How has investment in industrial sector been incentivised in budget for FY2016?
Governance and Reforms
 Is the agenda for strengthening local government lost?
 The unsung agendas – what about reforms?

How did the present context inform the
budget for FY2016?

How did the present context inform the budget
for FY2016?
 The national budget FY16 has been prepared in the backdrop of the following
advantages in national economy:
 Low inflationary pressure
 Declining interest rates
 Stable exchange rates
 Manageable fiscal deficit
 Upward trend in remittance flows
 Favourable balance of payments
 Augmented foreign exchange reserves
 However the economy has to confront the following challenges:
 Poor fiscal planning creating credibility gap
 Domestic borrowing biased financing mix of the budget deficit
 Sluggish private investments and poor job creation
 Unachieved tax revenue target and overall poor revenue generation
 Poor utilisation of concessional financial including project aid
 Depressed export growth, both in the US and EU markets
 Inability to take advantage of current macroeconomic stability for growth-friendly expansionary
economic reforms
 Major Task Ahead: Translating the current macroeconomic stability into higher GDP
growth through acceleration of private investment

 Drawing strengths from global economy
 Low level of global commodity prices
 Falling price of crude oil
 Strong US Dollar
 Recovery and job growth in US and key EU countries
 Confronting challenges originating in global economy
 A weakened Euro
 Weak investment demand in oil-exporting economies
 Weakened global trade
 Growing competitive pressure from Vietnam, Cambodia and Pakistan
 New developments such as the TPP
for FY2016?

for FY2016?
The objectives of the budget for FY16 appear to be:
 High growth of revenue targeted for underwriting overreaching
expenditure
 Harmonisation of taxes and tariff to support selected domestic activities
and sectors
 Higher allocations for building physical infrastructures to enhance
capacities
Also Budget FY16 is being presented at a time when:
The Sixth Five Year Plan is reaching its finishing line
The Seventh Five Year Plan is commencing with the FY16 budget
Coinciding with the launch of post-MDG international development goals

How realistic is the macroeconomic
outlook proposed in FY2016 budget?

How realistic is the macroeconomic outlook
proposed in FY2016 budget?
 The GDP growth target for FY16 is set at 7.0% (6.5% in FY15, provisional)
 Moderate improvement in GDP growth and investment (both private and public)
forecasted – modest expectation regarding investment scenario
 In FY16, 65% of incremental investment to come from private sector,
remaining 35% from the public sector
 An additional (approx.) Tk. 57,000 crore private investment will be required in
FY16
 ICOR is expected to decline (improve in productivity) in FY16 and stabilise
 The growth targets for FY2016 has been toned down in view of the underachieved
growth targets that were envisioned in the SFYP
 Inflation is also expected to stabilise around 6%
11
Indicator FY14 (A) FY15 (B) FY15 (R) FY16 (B) FY17 (T) FY18 (T)
GDP growth (%) 6.1 7.3 6.5 7.0 7.2 7.4
Investment (as % of GDP) 28.6 29.7 29.0 30.1 31.0 31.8
Private (as % of GDP) 22.0 22.2 22.1 22.8 23.4 24.0
Public (as % of GDP) 6.5 7.5 6.9 7.3 7.5 7.8
ICOR 4.7 4.1 4.5 4.3 4.3 4.3
CPI inflation (%) 7.4 6.5 6.5 6.2 6.0 6.0
Growth and Investment
CPD (2015): Analysis of the National Budget FY2015-16

How realistic is the macroeconomic outlook
proposed in FY2016 budget?
12
 It has been mentioned in the budget speech that annually 1.3 million jobs in the
domestic market and 0.5 million abroad were generated during 2010-2013
 However, it has not been mentioned that between 2005-06 and 2010, the
corresponding figures were 1.7 million and 0.6 million respectively - a slowdown
in employment generation!
 This implies a slowdown in annual employment generation after 2010 (in both
home and abroad) in comparison to previous four years

Is the fiscal framework losing credibility?

 Revenue (27.6%) projected to grow faster than public expenditure (23.1%)-
 Total budget expenditure is set at 17.2% of GDP
 Revenue income will be 12.1% of GDP
 Development expenditure (27.4%) programmed to grow slower than non-
development revenue expenditure (29.2%) – impact of new pay scale!
 ADP: 32.9% of total public expenditure (31.3% in the RBFY15)
 Budget deficit has been projected at 5.0% of GDP (same in RBFY15)
 Balance in financing budget deficit will be restored, if implemented –
 High foreign financing target (39.6% growth over the RBFY15) has been
set with anticipated gross foreign aid flow of USD 4.9 billion (highest
USD 2.9 billion in FY14)
 Government’s net bank borrowing will increase by only 4.1%
 The proposed fiscal framework is thus questionable
 The budget does not provide monitorable and transparent plan for
implementation: needed result-based management

 Budget targets take revised budget figures for FY15 as the reference point. However,
these are likely to be lower when the full picture for FY2015 will be available which in
reality will be lesser.
 In view of this, according to CPD projections, all major parameters of fiscal framework
will need to register higher growth rates to attain the targets compared to those planned
in the budget FY16.
Description
FY16B over
FY15R
FY16B over
FY15
Proj_CPD
FY15
Proj_CPD
over
FY14A
FY14A over
FY13A
Revenue 27.6 36.3 9.0 9.6
NBR Tax Revenue 30.6 37.0 15.5 7.8
Non-NBR 13.2 32.3 -16.3 16.8
Total Expenditure 23.1 42.6 10.0 8.2
Annual Development Programme 29.3 42.6 22.9 11.8
Non-ADP 20.3 42.5 4.6 6.7
Deficit 13.6 60.3 13.0 4.2
Net Foreign Borrowing and Grant 39.6 151.1 23.6 -23.5
Domestic Borrowing 3.3 34.4 10.3 14.9
Growth Rates: Budget and Reality (%)

 Quality of fiscal planning has weakened over the last three years and is likely to
continue in FY15
 One of the weakest links among the indicators relate to net foreign borrowing
Fiscal gap (Budget-Actual) as percentage of budget (%)
Indicators FY11 FY12 FY13 FY14
FY15_CPD
proj
Total Expenditure 3.0 6.8 9.2 15.4 17.4
ADP 14.7 17.3 9.0 13.9 15.3
Total Revenue -0.2 3.1 8.3 16.2 16.4
NBR Revenue -5.0 0.3 8.0 18.1 14.0
Deficit 10.3 16.4 11.9 13.1 20.0
Net Foreign Borrowing 75.7 72.2 50.4 76.7 50.6
Net Domestic Borrowing -29.2 -12.3 4.4 -12.3 2.8

Actual % share of GDP FY08 FY09 FY10 FY11 FY12 FY13 FY14
FY15
CPD_P FY16B
Total Expenditure 13.5 12.7 12.7 14.0 14.4 14.5 14.0 13.7 17.2
ADP 2.9 2.8 3.2 3.6 3.6 4.2 4.2 4.5 5.7
Non-ADP 10.6 9.9 9.5 10.4 10.8 10.3 9.8 9.2 11.5
Total Revenue 9.3 9.1 9.5 10.2 10.9 10.7 10.4 10.1 12.1
Deficit -4.2 -3.6 -3.3 -3.9 -3.6 -3.8 -3.6 3.6 5.0
Net Foreign Borrowing
and Grant 1.2 0.7 1.2 0.4 0.7 1.1 0.7 0.8 1.8
Domestic Borrowing 3.0 2.8 2.0 3.3 2.9 2.7 2.8 2.8 3.3
Fiscal Framework as % of GDP (New Base)
 As share of GDP, between FY12 and FY15 -
 Revenue-GDP ratio also declined !
 Public expenditure did not increase!
 ADP has increased

How challenging will attainment of
revenue target in FY2016 be?

How challenging will attainment of revenue
target in FY2016 be?
 FY16 budget targets an additional Tk.
45,072 crore revenue with a 27.6% growth
over RBFY15
 CPD Projection: (approx. Tk. 55,500 crore)
 NBR to take the lead role (accounting for
91.7% of incremental revenue) with 30.6%
growth
 LTU is expected to account for 30.9% of
incremental NBR revenue
 36.3% of incremental revenue from income
tax; while 29.6% from VAT
 Two-thirds of total income tax will be
collected from companies
 Import duty collection growth target is set
at 24.2%
Share of Revenue FY16
Incremental Share of Revenue FY16

How challenging will attainment of revenue
target in FY2016 be?
 Non-NBR revenue (non-tax plus non-NBR tax) growth for FY16 remains at a
reasonable level (13.2%)
 Much will depend on mobile spectrum fee
 Actual required growth could be as high as 32.3%
 CPD projected Tk. 30,000 crore shortfall (from the original
target) in FY2015 (from the original target) on 1 June 2015, in its
State of the Bangladesh Economy in FY2015 report
 Under such a scenario required growth rate for revenue in FY16 may shoot
up to around 36.3%, while for NBR the actual target may stand around
37.0%
 Earlier experience - only in FY08 (27.4% - CTG and international price effect)
and FY11 (28.0% - international price effect) a higher growth was attained –
two outlier years!

Are agriculture and social sectors
marginalised within the public
expenditure framework for FY2016?

Are agriculture and social sectors marginalised within the
public expenditure framework for FY2016?
Sector
Share in
BFY16
Share in
RBFY15 Change in FY16B over FY15R
% Crore Tk %
Public Service 19.2 13.6 24,208.0 74.5
Interest Payments 11.9 12.5 5,244.0 17.6
Education and Technology 11.6 14.0 871.0 2.6
Transport and Communication 9.7 8.3 8,834.0 44.5
LGRD 7.1 8.0 1,708.0 8.9
Agriculture 6.8 7.6 1,860.0 10.3
Fuel and Energy 6.3 3.9 9,202.0 98.5
Defence Services 6.2 7.4 613.0 3.4
Social Security and Welfare 5.7 5.8 2,770.0 19.8
Public Order and Safety 4.6 5.8 -253.0 -1.8
Health 4.3 4.8 1,158.0 10.0
Housing 1.0 0.8 898.0 44.5
Industrial and Economic Services 0.9 1.2 -119.0 -4.1
Recreation, Culture and Religious Affairs 0.8 0.9 227.0 11.0
Others(Memorandum Item) 3.8 5.5 -1,789.0 -13.6
Total Expenditure 100.0 100.0 55,432.0 23.1
Total Public Expenditure

 Allocation for Public Services is set to be 74.5% higher of RBFY15 (Tk. 24,208
crore)
 Tk. 24,711 crore additional allocation for Finance Division! - Mostly to be paid
for salaries
 Additional Tk. 6,925 crore allocation for Investments in Shares and Equities
 Tk. 5,000 crore has been for Investment for Recapitalisation – (for State-
owned banks!)
 Interest payment remains the sector with third highest allocation
 Domestic Interest Payments will increase by 18.5% in FY16– about 19.3% of
total augmented non-development revenue expenditure – effect of deficit
financing
 No clear mention of the total demand proposed for FY16
 Total subsidy allocation is reduced by (-) 10.2%
 Lower global prices will keep subsidy pressure in control
 A comprehensive subsidy policy for Bangladesh is important!

 Total allocation for agricultural & allied sectors (AAS) is decreasing
Share of AAS in Total Budget Share of AAS in Total GDP
 Average share of AAS in total budget was 10.3% during FY10-FY15, but
reduced to 6.8% in FY16
 Average share of AAS in total GDP was 1.28% during FY10-FY15, but reduced
to 1.16% in FY16
 Allocation for the Ministry of Agriculture in FY16 budget increased by only 2%
(less than inflation rate; decline in real terms).

 Allocation for the education sector is 11.6% of total budget in FY2016
 Allocation is lower than the UNESCO suggested limit (20% of total budget)
 Share of health both as percent of GDP and total budget has been decreased
 From 6.1% of total budget in FY2010 to 4.3% in FY2016
 Allocation related to gender budget has increased for 26 ministries and
decreased for 14 ministries in FY2016
 The much awaited child budget has been introduced in FY2016: a welcome
initiative
 Child budget shows allocation for 5 ministries; however, no new allocation is
made – allocation as a share of total budget is declining!
Ministry of Health and Family Welfare
Type of Expenditure 2015-16 2014-15 2013-14 2012-13 2011-12
Total allocation as % of total budget 4.13 4.74 5 4.87 5.13
Total expenditure as % of GDP 0.71 0.75 0.7 0.71 0.73
Ministry of Education and Ministry of Primary and Mass Education
Total allocation as % of total budget 10.72 11.91 13.33 11.81 12.51
Ministry of Social Welfare and Ministry of Women and Children Affairs
Total allocation as % of total budget 1.67 1.8 1.84 1.87 2.01

 Allocation for social safety net programmes (SSNPs) in FY16 was 2.2% of
GDP
 6FYp target: 3% for FY15
 About 30% is pension for retired government employees
 Without government pension allocation was stagnant at 1.5% of GDP
 Allowances for major programmes under SSNPs have remained either unchanged
or only changed insignificantly since FY10
 Thus, the real value of Tk. 300 given as old age allowance would be Tk. 183 if
price level of April 2015 is compared with price level of July 2010 (CPI in July
2010 and April 2015 was 147.1 and 211.5 respectively)
 Number of beneficiaries increased – a positive move!

Can ADP for FY2016 be implemented
without addressing the structural
bottlenecks?

Can ADP for FY2016 be implemented without
addressing the structural bottlenecks?
 ADP of Tk. 97,000 crore has been proposed for FY16
 About Tk. 50,250 crore (63% of original ADP and 67% of RADP for FY15) was
implemented till May 2015 (last year the figures were 61% and 67%
respectively)
 FY2016 ADP is 29.3% higher than RADP for FY15 and 20.8% higher than original
ADP for FY15
 In reality it will be 42.6% higher (CPD projection)
 Project Aid component is 35.6% of total ADP (33.2% in RADP of FY15 and
34.5% % in original ADP of FY15)
The ADP for FY16 has 999 projects (1034 for ADP of FY15)
 In FY16 ADP only 41 new projects are included (in FY15: 29) – 1.4% of total ADP
allocation;
 159 new projects were included in the RADP for FY15

 33.4% of allocation is provided to 330 projects which are supposed to continue to
the next ADP (for FY17)
 However, highest number of projects (376 projects) are scheduled to be concluded
in FY16, according to project completion timeline
 249 carryover projects account for 14.2% of the total allocation
 Transportation sector has 61 of these projects, while ‘Physical Planning, Water
Supply &Housing’ Sector also has 40 number of similar projects
 Thus, total number of projects which should be concluded by end-FY16: 625
 Planning Commission identified 324 projects which may be completed in FY16
 Highest number of unapproved projects – 860!
Number of Projects According to Allocation Status
Project Status FY10 FY11 FY12 FY13 FY14 FY15 FY16
Unapproved projects without Allocation 492 800 702 720 662 624 860
Projects listed to seek Foreign Funds 227 292 259 327 346 338 382
Total Number of Projects in the ADP with allocation 886 916 1039 1037 1046 1034 999

 CPD has selected a set of 26 projects under the ADP for FY15 for close
scrutiny (share of these projects in total ADP in FY16 is 17.6%)
 Actual spending on these 26 were 34.3% during Jul-Mar FY15 (actual
spending on all ADP projects were 43.8%)
14 of the 26 projects were supposed to be completed in FY15
 ‘Construction of Haripur 412 MW Combined Cycle Power Plan and Associated
Substation’ was not reported in the ADP for FY16 (its cumulative progress was
73.6 per cent till Nov FY15)
 Apart from Haripur project, the other remaining 13 projects were not
completed in FY15 and were carried forward to the ADP for FY16
 Only Joydebpur-Mymensingh Road Development Project received
adequate allocation for completion in FY16 – which was supposed to be
completed by FY13

Status of (remaining) 24 priority projects (identified by CPD)
Possible implementation rate (%) if total FY16 allocation is spent
1-30%
(3
projects)
• Construction of Bibiana-3, 400 MW Combined Cycle Power Plant,
Veramara Combined Cycle Plant (360 MW), Construction of Nagarpur-
Mirzapur Bridge
31-60%
(10
projects)
• Dhaka-Chittagong 4-Lane, Dhaka Elevated Expressway PPP Project,
Ashuganj 450MW PP, Ghorashal 365 MW Combined Cycle Power
Plant, Shahjibazar 330 MW Combined Cycle Power Plant, Shikalbaha
Duel Fuel 225 MW Combined Cycle Power Plant, Power Production
and North Bengal Sugar Mill, Leather Industrial City, Dhaka (Second
Revised), Construction of 950m long Dharla Bridge in Kurigram
District
61-99%
(11
projects)
• Padma Multipurpose Bridge Project, Third Karnaphuli Bridge, Dhaka-
Chittagong Railway Development Project, Bhomra Land Port, Bhola
225 MW Combined Cycle Power Plant, Chapainawabganj 100 MW
HFO Based Power Plant, Providing Electricity Connection to 18 lakh
clients through Rural Electricity extension, Shahjalal Fertilizer Project,
Mubarakpur Oil/Gas Well Exploration Project, Augmentation of Gas
Production under Fast Track Program, Establishment of Gas
Compressor Station in Ashuganj and Elenga

 Practice of allocating symbolic allocation (the minimum to keep the project
in the ADP list) is still pervasive
 14 projects under ADP received only Tk. 1 lakh for FY16; 13 projects
received this range of allocation in FY15
 12 of these are investment projects (10 in FY15)
 All of these are carryover from ADP FY15
 9 of the 14 projects are from Transport sector (7 projects were in transport
sector in FY15)
 32 ‘investment' projects under ADP received only Tk. 1 crore or less
(besides those 12 investment projects with 1 lakh allocation) for FY16; 26
‘investment’ projects received such allocation in FY15
 21 of the projects are carryover (16 of those were carryover in FY15)
 As a whole these 32 projects received only Tk. 12 crore allocation in ADP
FY16 (averaged Tk. 37.6 lakh per project)
 Projects from 11 different sectors shared this allocation

 The business as usual scenario as regards ADP continues -
 Challenges of completion of concluding and carry-over projects
 Cost and time-overrun continue
 Large number of projects but implementation capacity of line ministries
not improved accordingly
 Rising number of unfunded projects
 No reform or policy mentioned to bring discipline in the ADP
 No result-based monitoring

Is the foreign aid requirement for
FY2016 too ambitious?

Is the foreign aid requirement for FY2016 too
ambitious?
Budget Deficit and Financing
 82.5% of incremental deficit is programmed to be financed by foreign sources
Description
BFY16 RBFY15 Growth
Crore Tk % of GDP Crore Tk % of GDP
FY16 over
RB FY15
Revenue Collection 208,443 12.1 163,371 10.8 27.6
Total Expenditure 295,100 17.2 239,668 15.8 23.1
ADP 97,000 5.7 75,000 5.0 29.3
Non-ADP 198,100 11.5 164,668 10.9 20.3
Overall Deficit (Excl Grants): 86,657 5.0 76,297 5.0 13.6
Financing
Foreign Grants 5,800 0.3 5,674 0.4 2.2
Foreign Loan (Net) 24,334 1.4 15,909 1.1 53.0
Foreign Loan 32,239 1.9 23,872 1.6 35.0
Amortization 7,905 0.5 7,963 0.5 (0.7)
Domestic Borrowing 56,523 3.3 54,714 3.6 3.3
Bank Borrowing (Net) 38,523 2.2 31,714 2.1 21.5
Non-Bank Borrowing (Net) 18,000 1.0 23,000 1.5 (21.7)
Net Aid 30,134 1.8 21,583 1.4 39.6
Net Aid (bln US$) 3.9 1.8 2.8 1.4 39.6
Gross Aid 38,039 2.2 29,546 2.0 28.7
Gross Aid (bln US$) 4.9 2.2 3.8 2.0 28.7

Is the foreign aid requirement for FY2016 too
ambitious?
 Share of domestic financing 65.2% (71.7% in RBFY15)
 Tk. 38,523 crore (44.5%) will come from the bank borrowing (41.6% in
RBFY15)
 Tk. 18,000 crore (20.8%) will come from non-bank sources (30.1% in RBFY15)
 Share of foreign financing will be 34.8% in FY16 (28.3% in RB of FY14)
 Gross foreign aid
requirement will be around
USD 4.9 bln (USD 3.8 bln
in RBFY14): an almost
impossible target in view of
only USD 2.3 billion being
received during Jul-Mar
FY15
 Much will depend on
project aid utilisation of
ADP: 90.7% of total
foreign resources are for
ADP projects
Sources of Deficit Financing

What are the ‘good’ and ‘not-so-good’
fiscal measures proposed in the budget
FY2016?

What are the ‘good’ and ‘not so good’ fiscal
measures proposed in the budget FY2016?
Positive Fiscal Measures
 Personal income tax threshold has been raised by Tk. 30,000 to Tk. 2,50,000
 Allowances of the Government officials will be taxed
 Tax on Publicly Traded Cigarette Manufacturer increased from 40 % to 45% and
change in price slabs for cigarettes (for VAT and SD)
 Tax has been imposed on income from Poultry & Hatchery in three progressive
slabs – expected to discourage misuse of zero-tax but could be a disincentive for
genuine entrepreneurs
 Tax at source on commission of buying houses is revised upward from 7.5% to 10%
 Extension of tax holiday and tax rebate for certain sectors
 CD on Capital Machinery: 1% for both export and domestic market oriented
industries: level playing field
 Flat rate of Tax at Source for all Export items: to be considered as final tax liability
of the exporters
 RMG Products: 0.3% to 1.0% and Non-RMG Products: 0.6% to 1.0%
 A good move from the perspective of revenue generation. However, a part of
this additional revenue should be used for dedicated support for ongoing
restructuring in the RMG sector

Fiscal Measures which may need to be reconsidered
 Personal income tax imposed on gratuity income over Tk. 2.50 crore – gratuity
income should not be taxed in principle
 Uniform minimum amount of tax of Tk. 4,000 for all taxpayers regardless of their
geographical locations – is not fair. Differentiated amounts are being considered
 Tax on net wealth above Tk. 30 crore has been slashed down to 25% from 30% - a
benefit to the very rich
 Tax for Publicly Traded Companies has been reduced to 25% from 27.5%
 10% tax rebate has now been abolished for issuing dividend of 30% and over.
At the same time, companies do not need to pay income tax at the rate of 35%
if less than 10% dividend is given – will undermine the interest of share
holders
 Penalty of 5% additional tax will be imposed if the dividend is less than 15%
 Overall, the changes will benefit companies
 Existing provision of 10% deduction of tax at source on income from share market
by any company or partnership firm has been removed
 Some adverse affect on revenue collection

Rate of Duty at Import Stage
 Major changes in rate of duties in FY16
 In FY16, the duty structure has been significantly revised
 Both CD and SD have been changed for a large number of products
 Unlike previous year, SD has been increased for more products than it has been reduced
 On the other hand, CD has been reduced for a significant number of products (723
items) while it has been decreased for only 64 items
 These changes indicate that there has been a move towards para-tariff measures as
against tariff measures for protection of domestic industries
 It may be recalled that, IMF-ECF obligated Bangladesh to rationalise para-tariff
measures
Types of Duty Increased Decreased Waived Imposed Total
Customs Duty 64 723 17 8 812
Supplementary Duty 401 366 7 21 795
Regulatory Duty 0 0 43 25 68
VAT on Import 0 0 14 0 14

Fiscal Measures which may need to be reconsidered
 Proposed SD (5%) on mobile usage should be exempted for a certain threshold.
 Higher specific duty on Raw and Refined Sugar – was a printing mistake(!) and will
remain the same
 Higher CD on Optical Fibre Cable - Access to internet will be costlier
 Higher specific duty on Iron & Steel (semi-finished) - Cost of construction will increase
 SD increased from 30% to 45% CKD Motor Cycle: Local manufacturers will be
benefited but the assembling industries will suffer
 Reduction on Some Prepared Food Products: Local Industry will be affected
 Reduction on Plastic Products: Local Industry will be affected
 Reduction of SD for a number of finished products may undermine competitive
advantage of local products
 Chocolate, pasta, sweet biscuits, waffles, bread
 SD increased to 20% Engines for Auto Rickshaw/Three Wheelers: Cost escalation
 VAT on Super Shops increased to 4% from 2%: Consumers will bear the burden
 Proposed rise of SD on selected inputs of leather and footwear products is likely to
increase production cost

Why should we continue the incentives
for legalising undisclosed money?

Why should we continue the incentives for
legalising undisclosed money?
 The Finance Minister did not say anything about undisclosed (black) money in the
speech. However, silence means continuation of earlier facilities to legalising
undisclosed income (or ‘whiten black money’)
 Special tax treatment (19C): Opportunity continues for investment in government
Treasury bond by paying only 10% tax
 Special tax treatment (19BBBBB): Tax per square metre is reduced from FY15 for
investing undisclosed money in real estate sectors (residential building and
apartments) outside of Dhaka and Chittagong cities.
 CPD estimates that the effective tax rate ranged between 1.49% and 3.72%
depending on location and size of the apartment- the provision will
discourage honest tax payers
 Unethical considering social justice
 Voluntary disclosure of income (19E): Scope continues for legalising undisclosed
money in productive and income-generating sectors through payment of 10%
penalty alongside the regular tax (provision includes capital market investment)
 Need for a predictable legal framework including a new law on
undisclosed money and benami property

What is the revenue implication in
FY2016 of the significant duty
restructure?

 At the import stage, collection of revenue (import duty, VAT, SD, RD) during July-
March FY15 was Tk. 26942 crore (29.1% of NBR’s total collection)
 CPD has analysed the import duty structure for FY16 considering the actual import
value for the first nine months of FY15
 According to the budget documents, the growth of CD, SD (import) and VAT (import)
has been planned to be about 24% (for all the three)
Duties/taxes at import
stage
BFY16 growth over
RBFY15
Growth estimated from
duty structure for FY16
Customs Duty 24.2 26.2
SD (Import stage) 24.1 6.3
VAT (Import Stage) 24.4 11.3
 CPD analysis found that, changes in the proposed duty structure is commensurate only
with the targeted growth envisaged for CD collection. The estimated growth based on
the changes in the duty structure diverges significantly from the budgetary plans for SD
and VAT
 Difficult to estimate the impact of changes in income tax related measures – the budget
speech did not mention any such implication
What is the revenue implication in FY2016 of
the significant duty restructure?

What is the revenue implication in FY2016 of
the significant duty restructure?
Enhancing capacities of tax administration is critical for attaining of
revenue mobilisation target for FY16
 Significant improvement of tax administration’s capacity will be required to attain
revenue mobilisation targets – however, it did not get any notable mention in the
budget speech!
 Expansion of tax administration upto upazila level was planned earlier – no actual
progress has been mentioned
 Transfer pricing cell needs to be strengthened
 Will require adequate budgetary allocation for the needed soft infrastructure
and human resources
 It can also help combat trade mispricing (i.e. misinvoicing and misdeclaration)
 Collaboration among relevant agencies (i.e. central bank, commercial banks)
 VAT and SD Act implementation plan needs to be finalised
 Disputed issues need to be resolved (single rate vs multiple rates, reduced rate
etc.)
 No mention about rationalisation of incentive structure!
 More effective utilisation of ADR window is needed

How has investment in industrial sector
been incentivised in budget for FY2016?

How has investment in industrial sector been
incentivised in budget for FY2016?
• Various fiscal and budgetary measures of the national budget FY16 will likely to reduce production costs,
increase operative profit and thereby facilitate businesses
• Changes in CD/SD/VAT, reduction of corporate tax rates and income taxes and budgetary allocation
• Infrastructure deficit is likely to remain a major concerning factor underpinning lack of adequate private
investment
• Only a few projects is expected to be completed in FY16 which will leave the demand mostly unmet
• Fast track projects may not be implemented as ‘fast’ as was hoped for
• Significant progress has been made only in case of two projects: Padma bridge and Rampal power
plant
Project Name Finance
modality
Deadline Total cost
(crore Tk.)
Allocation for FY16
Tk. Cr.)
To be
completed by
FY16
Padma
Multipurpose
Bridge (Revised)
BDG 2018 28790 7400 32.0
Dhaka MRT JICA and BDG 2019
(early commissioning)
21985 385.6 1.80
Deep Sea Port at
Sonadia
G-G 2055
(first phase 2015)
55000
(223 crore)
NA NA
Paira Sea Port G-G 2023 N/A Two unapproved-unallocated
projects in FY16
Matarbari Power
Project
JICA and BDG 2018 and 2021 35984 234 0.10
Rampal Power
Project
JV 2019 14510 - 62.5
LNG Terminal BOOT 2016 N/A -
Rooppur Nuclear P.
Plant
Russia and BDG 2017 5242 NA
Fast Track Projects: How ‘Fast’ are they?

Land is a binding constraint for private investment in the industrial
sector
 SEZs: Five out of 30 approved projects are in early stage; 1 at procurement
stage, 3 at feasibility stage; and 1 CCEA approved
• 6 to be established by the private sector; selected SEZs for investors of key FDI
sourcing countries (China, India and Japan)
• Incentives for industries in the SEZs should not create adverse incentive for
industries in the DTAs
• Timely implementation of RMG industry park in Munshiganj needs to be
ensured
 Slow progress of tannery industrial estate project: raises doubt as regards full
implementation by the second revised deadline (2016)
 16.2% completed till March FY15, maximum possible completion by FY16 will
be 59.0% as per allocation in the budget

Land is a binding constraint for private investment in the industrial
sector
 Progress as regards establishment of an Active Pharmaceutical Ingredients
(API) in Munshigonj is not satisfactory (completion year: June, 2015)
 37.8% by FY15 and maximum possible completion in FY16 will be 74%
 No reflection as regards allocation for establishment of Kaliakoir High-tech-
Park in Gazipur in FM’s budget speech
 No allocation has been made in ADP 16; only 1.9% of total work completed till
FY15
 Establishment of Mohakhali IT village in Dhaka under PPP: only at the
procurement stage

Power and energy supply needs to be ensured for new investment
 Total allocation for the power sector in FY16 is Tk.18540 crore –mostly for power sector
development projects; 98.5% higher than RADP FY15
 Only 11% of total budget allocated for energy sub-sector
 Out of (CPD identified) 24 projects the following projects are likely to be completed in FY16
1.Construction of Khulna coal based power plant connecting road;
2. Land Acquisition, Land Development and Protection for Paira;
3. 1320 MW Thermal Power Plant;
4. Upgradation of Khulna 150 MW Peaking Power Plant to 225 MW Combined Cycle Power
Plant;
5. 21 Town Power Distribution Project and Development of New 132/133 KV and 33/11 KV
Sub-station under DESA project
 Upon completion of these projects an additional 1,955 MW of electricity to be added in
the national grid
Total 0-25% 25-50% 50-75% 75-100%
Percentage of
maximum
possible
completion
4.5-100 4.5-15.4 25.5-49.9 54.6-71.2 77.9-100
Number of
projects
32 5 8 7 12
Projects under Power Sector supposed to be completed by June, FY16

 Under the existing composition of fuel-mix for
generation of power, there is scant possibility for
coal to be the main source in the coming years
 Use of HFO and Diesel is increasing; gas is
decreasing
 Total allocation for the energy and mineral resource
division in FY2016 is Tk.2037 crore: a rise of 100%
 Out of 36 projects under energy sub-sector in ADP
FY16 listed as “projected to be completed by FY16”
 16 projects likely to be completed
 6 Projects cost over Tk. 100 crore; are supposed to
be completed by June FY16.
 3 projects likely to be completed
 More allocation and quick implementation is
needed for gas sector related projects
0.0
10.0
20.0
30.0
40.0
50.0
60.0
70.0
80.0
90.0
FY11 FY12 FY13 FY14 FY15
%
HFO Diesel Coal Hydro Gas
Composition of fuel Use(%)
Power and energy supply needs to be ensured for new investments

Is the agenda for strengthening local
government lost?

 Allocation for LGD and Ministry of Chittagong Hill Tracts Affairs in FY16 has
increased (growth in FY16 over RB15 is 11.0% and 13.9% respectively)
 Allocation for rural development and cooperatives in FY16 has decreased
(growth in FY16 over RB15 is -15.8%)
 Ministry of Chittagong Hill Tracts Affairs is lagging in terms of
budgetary expenditure
 ADP allocation for LGD is about Tk. 16,650 Crore. The share has decreased
from 19.8% in RB15 to 17.2% in FY16
government lost?

 It appears that ‘District Budget’ has been discontinued after two years following its
introduction- the first district budget, for Tangail, was included in FY14 budget and
another six divisional districts namely Khulna, Chittagong, Rajshahi, Rangpur, and
Sylhet including Tangail were included in FY15 budget
 The budget FY16 mentions about preparation of a strategy paper to address the
issues of revenue distribution formula, procedure of decentralisation of power to
the LGIs and areas of administrative reform. This needs to be prepared with due
urgency
 In the budget speech FY16, proposal to allocate a lump sum amount for each
district has been mentioned, but no amount has been earmarked
 Can it be done just through discussion between Finance and Local Government
Ministry as the budget states?
 A Local government finance commission should be constituted for
comprehensively dealing with attendant issues.
government lost?

The unsung agendas – what about
reforms?

The unsung agendas – what about reforms?
One significant weakness as regards the way the FY16 budget has been designed is that it
does not mention about progress, scaling up and plans concerning a number of good
initiatives that were flagged in the FY15 Budget. In absence of this, it is difficult to
ascertain what has been the fate of these initiatives
 An Audit Act for budget implementation was first mentioned in the FY14
Budget. In the FY 15 Budget it was mentioned that the Act was underway. The FY16
Budget does not mention what is the status of the Act
 FY15 budget mentioned about installation of a state of the art debt database to
enhance the capacity of public debt management. There is no mention as to what has
been the progress and how the data base is being used
 Following up on the first District Budget for Tangail in the FY14 budget, the FY15
budget presented 7 District Budgets. It was mentioned that gradually all districts will
be brought under the purview of the District Budget. FY16 Budget does not mention
what is the plan and progress in this regard
 A special allocation of Tk. 50 crore was proposed in FY15 budget for construction of
houses in divisional and district towns for neglected segments of the
society. There is no mention about progress and follow-up in this regard

 It was announced in the FY15 Budget that there will be a “stimulus package” for
leather sector (including some others). However, the FY16 budget does not mention
any comprehensive stimulus package for this promising sector
 FY 15 budget stated that “Genuine” fishermen across the country were to be given an
identity card and be registered in a database. FY16 Budget does not mention whether
such a database has been created
 Proposal was made for digitised land surveys which would make zoning information
and land ownership easy to digitally archive. Digital surveys and updated record keeping
was said to be underway in parts of Dhaka. It is not known whether this work has been
completed and whether, and how, this work is being scaled up
 No mention about farmers not getting fair price of paddy and rice production
 No follow-up on laudable environment related initiatives - ‘Environment Protection
Surcharge’ or “Green Tax”, “Eco-tax” and Hybrid Hoffman Kiln (HHK)
technology for brickfields
A suggestion: Future budgets may contain a matrix articulating key
initiatives in the preceding budget, progress made in this context and a plan
and timeline for key milestones to be achieved during the budget period

In its third reading of “State of the Bangladesh Economy in FY2015”, CPD has suggested a
number of reforms and had proposed setting up a number of independent commissions
Reform initiatives that need to be prioritised
 Public Services Act
 PPP Act
 Privatisation
 Financial Reporting Act
 Implementation of VAT and SD Act 2012
Five independent commissions
 An independent statistical commission to validate the macroeconomic correlates
 A permanent agriculture price commission
 A permanent local government financing commission
 An independent public expenditure review commission
 An independent financial sector reform commission
FY2016 Budget only mentions about placement of PPP Act in Jatiyo Sangshad,
implementation of VAT and SD ACT 2012 from July 2016, merger of Privatization
Commission with BOI and setting up of Financial Sector Reform Commission
Reform initiatives will need to be given highest priority if current macroeconomic
stability is to be translated into a journey along higher growth trajectory

Thank You
CPD’s Pre-Budget and FY2016 Budget related reports can be
accessed from CPD website: http://cpd.org.bd/index.php/cpdirbd/

CPD Dialogue on Analysis of the National Budget FY2016

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