Pakistan's Economy and Monetary Policy
Pakistan's Economy and Monetary Policy
Pakistan's Economy and Monetary Policy
resources required to play a significant role in steering the economy on the track to
development. Since then Pakistan has been able to achieve a fairly high rate of
economic growth of 5.25 percent through rapid industrialization. In the 1960s, the
country was well regarded as a model for many developing economies. Fast growth of
the economy, however, could not lessen prevalent poverty significantly. In the 1970s
and 1980s, larger attention was given to securing a fairer distribution of income,
mainly through reforms as well, which coupled with high growth rate reduced poverty
sharply to 23%. In the early 1990s, however, a more just income distribution was not
much emphasized.
Pakistan economy could not remain immune to the domestic and international
challenges, the government has used fiscal, monetary and other policies to minimize
their adverse effects, in particular to stabilize the inflation rate at a low level and
achieve high growth rate of GDP at the same time. To this end Five Year Plans have
been regularly implemented since the early 1950’s, though not always succeeding to
achieve its targets, especially with respect of equitable growth and poverty reduction.
These matters are discussed at some length in this chapter. However, its main focus is
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Chapter 3: Pakistan’s Economy and Monetary Policy
recent events we begin the discussion from the 1980’s. The period of the study is
divided into three sub-periods, from January 1982 to June 1990, from July 1990 to
June 1999 and from July 1999 to June 2010. Then we discuss the current economic
challenges and the changes in the key economic indicators of Pakistan’s economy.
Lastly, we review some empirical evidences for Pakistan economy relating its
monetary policy.
In the 1980s, the economy showed a remarkable GDP growth rate averaging
6.50% for the decade. In 1985, the GDP growth rate escalated to 8.7% which was then
the highest growth rate in the country’s history. During this period, the policy efforts
were also devoted to initiate market friendly deregulation of the economy along with
extent, these reforms were responsible for increasing the growth rate of agriculture
from 2.1% during the 1970s to 4.0% during, 1980s. This recovery in agricultural
growth was an important factor in reinforcing overall growth. The annual average
growth rate of output in the manufacturing sector after registering a sharp decline to
3.8% during 1970, rose significantly to 9.2% during 1980s, although it did not
compare favorably with 13.4% attained in the 1960s. The services sector share
11
Economic policies provided additional export incentives, focused on the need for flexible exchange
rate management and improved the investment climate for private enterprises.
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Chapter 3: Pakistan’s Economy and Monetary Policy
increased equally. The growth rate of real per capita GDP, which was 1.3% per annum
during 1970s rose to 3.5% during the 1980s. The income distribution during this
period was fairly good compared to other countries of the region at about 30%
result, the average annual rate of monetary expansion of 16.2% was significantly
lower than the 18.8% rate during the 1970s. In 1980s, budget deficits (usually the main
cause of excessive monetary expansion) were partly financed from private savings
mobilized through national saving scheme (NSS), with higher than market interest
rates. This strategy worked well to decelerate monetary expansion on account of lower
government borrowing from the banking system. But it led to a persistent rise in
interest payments by the government. The main difference between the fiscal deficits
during 1970s and 80s, was the way they were financed (during 1970s, domestic
financing for the budgetary deficit came largely from money creation and led to instant
occurred during this period. Annual credit plan continued to be the main instrument
for determining growth of liquidity and credit in the economy. Also the system of
ceilings on credit by individual banks to private sector became the policy style and
deceleration in monetary expansion during 1980s was the continuous draw down of
foreign reserves and hence of the net foreign assets of the commercial banking system,
which fell down for most of the years during this period. However, the general
conservative stance of the SBP, the monetary and credit policies continued to be
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Chapter 3: Pakistan’s Economy and Monetary Policy
directed towards providing adequate credit to productive sectors in general and the
priority sectors in particular, and at the same time discouraging its flows to speculative
The SBP continued to use a fixed exchange rate is an anchor for monetary
policy-- that is, it maintained a fixed rate as a primary objective of monetary policy.
On 8th January, 1982 the exchange rate regime in Pakistan was converted to a
balance of payments in the early 1980’s demanded stronger action to prevent the
looming crises. To this end, the government decided to adopt a managed float system
in January 1982. The peg with US Dollar was discarded. The rupee devalued from Rs
9.90/US dollar to Rs 11.84 in 1982 which after gradual depreciation reached Rs 18/
US dollar by the end of June 1988. The nominal exchange rate depreciated almost
twice as fast as warranted by relative change in the prices between Pakistan and its
major trading partners. A positive aspect of it was it helped the growth of workers’
remittances besides providing some boost to exports, though the structure of exports
Since 1990, the emphasis has been on growth through structural reforms. For
made to analyze trends in some of the key macroeconomic variables. In sharp contrast
12
The period, just after the debate among the economists regarding option of free float in exchange rate
to be preferred over hard peg, saw many countries including developing ones opting for the flexible
regimes.
13
The basket includes; US Dollar, Pound Sterling, Dutch Mark, Turkish Lira,
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Chapter 3: Pakistan’s Economy and Monetary Policy
to the bright performance of the earlier years, Pakistan’s did rather poorly during the
1990s. It could indeed be called a lost decade, marked by declining growth and
sluggish tax-to-GDP ratio causing a steady increase in large fiscal imbalances. In this
period average GDP growth remained 4.61%, much behind that of previous period
which averaged more than 6.5%. The real GDP growth decelerated to an average of
5% and to 4% during first and second half of the 1990s. The proximate cause was the
the agricultural infrastructure in the wake of wide-spread floods caused the agriculture
sector to grow at a negative rate. Then the politically motivated factors administered
shocks to the large scale manufacturing and the services sectors, which contributed to
a decline in growth. To it, the banking sector crisis added hugely to the overall
macroeconomic slow-down. The saving and investment rates also fell to a lower level.
The investment rate fell to almost 15.5 % in the 1990s.declined to 8.6% in the first half
and further to 6.1% during 1995 to 1999. The National saving rate, which witnessed a
marginal improvement from 14.7% in the 1980s to 14.9% in early 1990s, sharply fell
imbalances in this era, the government acted rather perversely: it cut down the
the same time, it did practically nothing to mobilize tax revenue collection or cut down
non-development expenditures. Rather than reverse the declining trends in both the
real and the financial sectors by strong expansionary policies, the focus of structural
reforms was to rationalize the microeconomic side of the economy. The government
prices, especially of the relative prices of the agriculture products, by adjusting the
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Chapter 3: Pakistan’s Economy and Monetary Policy
exchange rate and removing the protection offered to industry, and by reducing or
eliminating the subsidies on the urban consumers. As if to worsen the situation, the
international prices of cotton, wheat and rice declined.14 The performance of the
agriculture sector did not improve as the financial provision for the reconstruction of
sector did no better. On the one hand, a series of measures were taken to rationalize it.
encourage deletion, the industries were protected and the import of raw materials was
allowed through concessions in duties, ranging from zero to a maximum of 35%. But
in the absence of strong demand conditions huge investment in cement, sugar, thermal
power generation through IPPs, automobiles and electrical durables only resulted in
reforms initiated in late 1980s was to reduce the protection to make it competitive in
the international markets. Through efficient resource allocations, the price controls
promoted. In early 1990s, the government took a number of policy measures to boost
foreign direct investment (FDI) by opening such industries where foreigners were
allowed to participate in 100% equity of the industries. Many other actions were taken
in this regard like technical fee, liberty in foreign exchange regimes, removal of
restrictions and non-tariff barriers. In 1997, the government also opened the
agriculture, services and social infrastructure for FDI. Despite such substantial
14
Ishrat Hussain “Reforming Pakistan Economy: Performance, Progress, Prospects and Problems”,
speech delivered in Washington DC on 9th April 2002, Cited in M Ashraf Janjua “History of State Bank
of Pakistan (1988-2003)”
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Chapter 3: Pakistan’s Economy and Monetary Policy
increase in the FDI, due to political instability in 1990s, the true fruits which Pakistan
could attain from these measures could not be achieved and the pattern of inflows into
Pakistan has been interrupted. However, most of these efforts to encourage the
monetary policy. The generally high interest rates must have stunted the growth of
private sector.
Before the 1990’s structural reforms agenda, the conduct of monetary policy
was by the use of direct controlled instruments along with Cash Reserve Ratios (CRR)
and statutory liquidity requirements (SLR). The Bank rate remained unchanged at 10%
for many years. The principal instrument of monetary control was bank-wise credit
ceilings. A market based monetary and credit management system was introduced at
the beginning of 1990s. Major reforms in this phase included the introduction of
public debt auctioning, abolition of credit ceilings and credit deposit ratio (CDR).
These measures paved the way for management of monetary and credit expansion
through use of market oriented measures such as open market operations (OMO),
Credit Ceilings Regime: The system of credit ceilings which started in 1973,
remained a policy option until July 1992, when CDR replaced it. In most of the years
sparked inflationary pressures in the economy and sometimes even crowding out of
the private sector. During the entire period of CCR, the government controlled the
structure of interest rate. The system of credit deposit ratio was introduced which was
more flexible. It was a modified version of CCR. Under this system, banks could
deposits, which was to be decided by SBP. The credit for CDR calculation was
defined to include: (i) loans, and other cash facilities, (ii) bills purchased and
discounted domestically, (iii) loans to banks, (iv) all investments. There are some
elements which are excluded from CDR definition: (a) government securities’
investment, (b) Advances to central and provincial governments, (c) foreign bills
purchased and settled. The CDR for the July-Sep 1992 was fixed at 30% of banks’
average weekly local currency deposits and 40% of Banks’ foreign currency deposits.
This system was abolished on 30th September 1995. The CDR operated under the
guidance of the SBP. In summary both actions (CCR and CDR) adversely affected the
profitability and balance sheet of banks and led to an increase in the volume of loans
and segmented the credit markets. After the abolition of (CDR) in September, 1995,
indicative targets for expansion of credit to the private sector were set for commercial
banks. As in the case of CDR, the indicative targets were within the framework of
annual credit plan and were operative simultaneously with a number of policy changes
mechanism. For individual banks, targets were worked out on the criteria on the basis
of the bank size, the returns offered on saving deposits, recovery of defaulted loans
privatization of public sector enterprises including some banks. It was then a realized
fact that for many years monetary policy was being determined by public sector
a comprehensive reform agenda for financial sector which was introduced in 1989
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Chapter 3: Pakistan’s Economy and Monetary Policy
policy. This program introduced auctioning of government debt, raise interest rate
along with segmentation of the credit market. The instant actions which were taken
include devaluation and sudden change of the government subsidies to balance the
budget.
These measures however did not result in any dramatic change in the overall
macroeconomic performance, partly because they take effect with a considerable time
lag even when successful to make a noticeable impact on the economy.15 In the short
run, stabilization policies are usually adopted to control the immediate negative impact
on the business cycles and to reduce the current account deficits in balance of
payments and the budget deficits to sustainable levels. In the long run, the focus of
attention must remain the strategies for a high growth path and an equitable
distribution of national incomes and wealth. However, the government did not take
any effective steps to either promote growth rate or reduce the income equality.
The growth of real GDP in this period was generally higher than that in the
previous decade but it was much too volatile to make a decisive impact on poverty. On
a whole it averaged a little more than 4.6% annual, showing maximum of 9% (in
2004-05; highest in the country’s history) and a minimum of 1.7% (in 2008-09). Main
contributors of the growth in the mid of this decade were services sector and large
scale manufacturing. The growth of agriculture sector was also impressive in 2004-06.
15
World Bank 1982
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Chapter 3: Pakistan’s Economy and Monetary Policy
recorded a high growth. As stated earlier, growth has been underpinned by cooperative
macroeconomic policies and benign condition of financial markets. Per capita income
doubled during 1999-2007. In 2006 investment reached a record level of 23% of GDP.
The foreign direct investment appeared to be a major source of external flows for
servicing, curtailing poverty and investing in infrastructure, both physical and human.
During this period fiscal deficit which remained about 6.9% on average in 1990s,
averaged 4.5% during 2000-10. The survey also claims that since 1999-2000 the fiscal
structure was shifted from current to development and overall expenditures remained
18.7% of the GDP during the entire period and revenue remained 14.2% on average.
Total tax collection in this period increased to 300% i.e., from Rs. 346.6 billion in FY
1999-00 to Rs. 1327.0 billion in FY 2009-10, but the sharper increase in GDP did not
changed tax to GDP ratio which was 9% in 1999-00 and 10.1% in 2009-10.
The debt servicing liabilities showed a sharp decline from 42 percent of total
revenue in 1999-2000 to 31.6 percent of revenue in 2009-10 and from 53.5 percent of
liquidity: the growth of monetary assets averaged a little more than 15% for three
consecutive years, from 2001 to 04. The main conduct of monetary policy was placed
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Chapter 3: Pakistan’s Economy and Monetary Policy
convenient to pass on the fiscal burden to the monetary policy. So the monetary policy
in Pakistan has mostly been accommodating like in many other developing countries.
contraction of monetary policy, which also became aggressive rather than being
broadly accommodating. However, the moderate (low) interest rate helped raising
gradual rise in core inflation. Inflationary expectations rose when the government
To curb inflation, in April 2005 SBP raised discount rate by 150 bps to 9%
and further to 9.5% in July 2006. High growth of credit in private sector reflected
more demand pressure despite the rise in discount rate. It needed further actions by
SBP, one of which was taken on August 1st, 2007 by an increase of 50 bps in the
discount rate. On 30th July 2008 the discount rate was 13%, on 30th Nov 2008 it was
15%; 17th August 2009 it was again 13%; 27th March 2010 it was 12.5% and on 31st
January 2011 it was 14%. As a result of these actions, some noticeable changes
occurred in the monetary indicators. The average growth of net bank credit to
government sector during this period was 24.16%, which includes large increases in
Similarly the growth of the net credit to private sector reduced from 34.36%
the same period. The average growth of NFA remained about 9.5% during this period
which contributed to the average growth of money supply which remained 19.38
percent during 2000-2010. Thus, on the average, the monetary tightening stance has
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Chapter 3: Pakistan’s Economy and Monetary Policy
The second half of this period is marked by rising inflation majorly above
10%. The average CPI inflation during 2005-2010 remained above 14%. Main cause
of this inflationary episode is the food inflation which was estimated at 18.4%. This
increase in inflation is attributable to the rise in food inflation which has been mainly
due to increase in prices of milk, poultry, meat, sugar, fruits and fresh vegetables due
to shortfall in production of these things and large increase in world food prices.
stress was significant in the beginning of FY 2010-11 and it was only made worse by
difficulties in the implementation of the IMF program and reduced availability of loan-
able funds from non-bank sources elevated the pressures on the State Bank of Pakistan
to finance the fiscal deficit. The SBP policy rate remained 10.27 % on average since
2001 and to target the inflation and to control the demand related risks to
macroeconomic firmness, SBP kept the policy rate above this average since August
2010. As an aftermath of heavy floods, the rate was further increased by cumulative 14
percent up to 30th November 2010 well above the long run average until April 2011.
Execution of such a severe stance required mopping up excess liquidity in the market
this end, the weighted average overnight money-market-repo rate has increased by 124
Unfortunately, the budget deficits have been much too large to be financed by
the weak tax collections. This in turn, raised inflationary pressures, and made
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Chapter 3: Pakistan’s Economy and Monetary Policy
monetary management more complex; it also increased current account deficits. These
developments have eroded the effect of monetary tightening actions, and raised the
risks for further increase in inflationary pressures. In this backdrop, tackling widening
imbalances has become vital as these imbalances not only augment the inflationary
pressures, but also hamper growth prospects. The importance of small and stable
inflation to achieve high long run growth also extends a basis for the coordination of
sparse. For this purpose, in closed economy context the most important work is done
by Malik and Ahmad (2007) recently, where authors have analyzed the rule-based
found that the State bank of Pakistan has not followed no well-known, theoretical rule
a; rather the monetary policy formulation has mainly been discretionary. The interest
rate response function in a closed economy version of the model shows the interest
smoothing behavior of the policy maker. Further through counterfactual analysis they
show that the following any type of rule (particularly Taylor rule) would have
performed in more responsive manner. Reasons could be; (i) SBP would not like to
lean against the wind in the economic situation of Pakistan where economic
performance and decision making is less elastic to policy changes; (ii) Fiscal
internal policies.
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Chapter 3: Pakistan’s Economy and Monetary Policy
Qayyum (2007). This study argues that there is a strong disagreement about a single
use of monetary indicator as suggested by, for example, Sims (1992), Bernanke and
Blinder (1992), Christiano and Eichenbaum (1992) and Bernanke and Mihov (1998).
is a weighted some of interest rate and exchange rate changes have been criticized
because it imitates the changes in both exchange rate and interest rate which are not
related to monetary stance. For Pakistan Economy the measure based on Bernanke and
Mihov (1998) is found to be better than the monetary condition index because it
of monetary policy.
Akbari and Rankadua (2006) argue that monetary policy in Pakistan since
1999 shows a clear-cut inflation targeting trend. This leads our thinking to address the
issue in an open economy framework. A comprehensive study of the issue will add to
the existing literature, for developing countries in general and for Pakistan in
particular.
have done a detailed study. They established a VAR model to examine the
endogenized the choice variable first, and then exogenized, representing a specific
channel. Therefore, basic model with a variable of interest, such as credit to private
sector for credit channel, and evaluate the results obtained with the exogenized credit
domestic demand, then this reduction in domestic demand is explained into a steady
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Chapter 3: Pakistan’s Economy and Monetary Policy
reduction in price stresses that ultimately reduces the overall prices with significant
lags. Additionally with this interest rate channel, there is a diffusion system in which
banks play an imperative role. There is an active asset price channel for Pakistan,
whereas, comparatively the exchange rate channel has been less significant. Zaidi
(2005) provides a theoretical discussion on exchange rate regimes and their connection
economy in the context of broad aim of this study. For example, the use of alternative
in policies both at political and economic front in 1990s and high volatility in growth
and inflation at the eve of this century, are questions of concern for researchers. The
use of monetary policy tools has also been miserable; using saving schemes and
monetary growth at the same time; increasing discount rate to curb inflation while
failing to achieve its avowed policy goals. One could see several reasons for such
response; for example, more than required money growth and cost-push inflation. The
increase in the domestic credit and budget deficit which remained above five percent
on average with an average inflation of about eight percents during last two decades
show poor performance of policies; both at fiscal and monetary fronts. Similarly
developing country with ex post unusual inflation. To restrict money supply to private
sector, ceilings on credit were imposed. The multi-facet reforms’ agenda of 1990s to
emphasize growth, could hardly bring any fruits, rather the economy witnessed the
recession. The main reason of slow growth has been the miserable large-scale
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Chapter 3: Pakistan’s Economy and Monetary Policy
and indicative credit targets, whereas on other part it started increasing discount rate
after peg of decade. These actions produced below 5% average GDP growth with an
average inflation of about 10% in 1990s. The monetary expansion after 2001
witnessed a warm market response and the economy saw a new boom. The tight
monetary policy which could not control inflation generated low investment and tax
revenue in FYs 2009-11. So, a higher than required increase in money supply leads to
measure. The governments’ urge to increase the cash reserve ratio also generates
inflation. The SBP shows a passive behavior in middle inflation regime with a higher
than normal bandwidth of tolerance level, as we find in the empirical analysis of this
study. Similarly too strict behavior of SBP is witnessed in the high inflation regime.
On the practical ground (as as later part of this study shall reveal) the use of monetary
policy tools has been mystifying; using saving schemes and money growth
observed data to identify that the policies used by State Bank of Pakistan were
optimal, or there are some other alternatives, which could perform even better.
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Appendix 3
Table 3.1: Selected Macroeconomic Indicators during 1982-2009*
Indicators 1982-90 1990-99 2000-09
Average GDP growth % 6.5 4.27 6.0
Average Inflation % 7.2 9.72 6.4
Average Imports % 12.67 12.85 22.30
Average Exports% 16.22 15.71 15.02
Average Monetary Growth % 13.2 14.20 19.38
Average Trade Balance (Million US$) -2940.1 -2540.63 -3130.2
* Data Source: IFS
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