Introduction: I gave my commitment to the management of RealNews
magazine since late May to deliver this third-anniversary lecture, and we
agreed that given my tight schedule, I could just speak ex tempore or from
speaking notes. However, I decided to write down my thoughts a few days ago for
the avoidance of doubt. My apologies if you find this a bit tardy. I have taken
the liberty to modify slightly the topic to reflect my central message.
The timing of this lecture is auspicious—coming in the 6th
month after the inauguration of a new administration, and also with a new
federal cabinet now in place. Before the government rolls out its full agenda,
this is a good time to begin our citizen duty of joining the ever continuous
discourse on the economy. Our focus for now shall be pre-emptive and
provocative--- to challenge the Buhari/APC regime not only to demonstrate that
it can manage the economy better than the PDP but also that it can lay the foundation
for sustainably shared prosperity in a post-oil economy.
Let me make three quick points to provide some context to our
discourse. First, I supported President Muhammadu Buhari (PMB) over Jonathan
not because I was convinced about the credibility of the APC manifesto (and I
said so in my article in January this year) but for three reasons. I was
convinced that the last economic team was bankrupting the economy and had no
clue as to how to fix it. Second, PMB is the first president of Nigeria under a
democracy to have seriously desired the job and struggled for it for over 12
years. To me therefore, he must have a few points to prove, and I was willing
to bet on a man who purposefully wanted the job than otherwise. Third, I was
convinced that it would be in the enlightened self-interest of the APC, once in
power to do their utmost to keep power by delivering on the economy unlike the
PDP which had taken power for granted. I am still confident that PMB can
deliver change (although as I had indicated in my article in January, I didn’t
believe that any of the two parties could deliver on their manifesto) but he
and his team now need to run at the speed of a 1000 km per hour. We must
support them to succeed by contributing when we can, and criticising when we
must—tough love! I am enjoying my status as ‘an independent’ (I don’t belong to
APC or PDP) and I therefore have the liberty to say it as I see it from the
balcony!
Second, I am happy that the ministers are now in place, and I
believe the president has assembled a team of eminently qualified and
experienced Nigerians. A more important point is that it is a team of
‘believers’—who share in the mission and vision of APC. So now that a strong
team of ‘believers’ is in place, there can be no excuses!
Furthermore, I read in the media that the Vice-President, Prof.
Osinbajo indicated that he is “responsible for the economy”, and I believe
President Buhari deserves great commendation for this fundamental delegation.
No question, the buck stops on Mr. President’s table. However, as I argued in
my article published January this year – “Buhari vs Jonathan: Beyond the
Election” (which Vanguard newspaper still posts on their website under a
section captioned ‘The Soludo Debate’), I believe the intention of our Constitution
is that the VP should be the ‘coordinating minister of the economy’. Besides
being the chair of the national economic council (NEC), our laws make the VP
chair of major economic institutions of the federal government. Thus, once a
president selects his VP, we should begin to have some ideas about the possible
direction of economic policy akin to a party in the UK naming its Chancellor of
the Exchequer. Ours is a peculiar institutional design but to the best of
my knowledge, these provisions have been undermined in the past (I have
thoughts on possible amendment to the constitution so that VPs are not
automatic successors to the President in case of ‘accident’ and to shield the
office from the distractions of day to day politics to focus on the economy and
no more). President Buhari has repeatedly stated his focus on “re-building” our
institutions, and where else to begin the process of systematic dialogue on the
economy than the strengthening of institutions for doing so within government?
There are other institutional structures it must create/strengthen to
consolidate and sharpen what Nigeria desperately needs now: a War Room on the
Economy!
The rest of the paper is organized as follows: In section II, we summarize a caricature of the baseline statistics on the economy that PDP bequeathed but which APC/PMB must improve upon. Section III shows that the ‘old’ Buharinomics of command and control is a tried and failed policy and won’t work now. In Section IV, we hint at a few issues the new Buharinomics must take cognizance of if it hopes to build a sustainable, shared prosperity for Nigeria. We conclude in Section V.
The rest of the paper is organized as follows: In section II, we summarize a caricature of the baseline statistics on the economy that PDP bequeathed but which APC/PMB must improve upon. Section III shows that the ‘old’ Buharinomics of command and control is a tried and failed policy and won’t work now. In Section IV, we hint at a few issues the new Buharinomics must take cognizance of if it hopes to build a sustainable, shared prosperity for Nigeria. We conclude in Section V.
II: Baseline Statistics: What is the APC/Buhari Government
trying to ‘Change’?
Every team serious about ‘change’ starts with a clear identification of the baseline from which it measures deviations/progress. Nigeria has had 16 uninterrupted years of democracy with the PDP controlling the federal government as well as majority of the states. APC is now in charge at both the centre and majority of the states. A minimum standard for measuring ‘change’ is the extent to which APC government beats the record of the PDP in measurable terms. As the saying goes, if you can’t measure it, you can’t improve/change it!
Government must strengthen the National Bureau of Statistics (NBS) and preserve its independence to produce and publish credible national statistics. It needs serious funding. I really wish our policymakers can be a little less careless or casual about the use of official statistics.
Every team serious about ‘change’ starts with a clear identification of the baseline from which it measures deviations/progress. Nigeria has had 16 uninterrupted years of democracy with the PDP controlling the federal government as well as majority of the states. APC is now in charge at both the centre and majority of the states. A minimum standard for measuring ‘change’ is the extent to which APC government beats the record of the PDP in measurable terms. As the saying goes, if you can’t measure it, you can’t improve/change it!
Government must strengthen the National Bureau of Statistics (NBS) and preserve its independence to produce and publish credible national statistics. It needs serious funding. I really wish our policymakers can be a little less careless or casual about the use of official statistics.
I criticized the last government for relying on ‘estimates’ by
World Bank staff instead of the NBS statistics. When I hear the narrative so
far in the media by the new government regarding the economy, I take it largely
as the kind of ‘usual propaganda’ new officials deploy to show that their
predecessors “did nothing” and therefore lay the ground for claiming that they
are “doing everything for the first time in our history”. Fortunately also,
there are many people as well taking a hard look at the numbers and recording
scores. At AfriHeritage, we are developing a template for measuring government
performance. As Nigeria has largely evolved into a two party state in a
democracy, I prefer to frame the discourse on the baseline as ‘PDP’s legacy and
the APC’s challenge’!
Since it is the practice to blame the PDP for every ill that
befell our country in the last 16 years (and there are many of them) it is also
fair to credit them with the positive ones. According to data from NBS, one
outstanding legacy of the PDP is that in 16 years it held sway, it more than
doubled the GDP of Nigeria (indeed with average year-on-year GDP growth rate in
excess of 6% over the past 12 years, the GDP actually doubled within the last
12 years. It met average annual growth rate of about 2% and raised it to 6-7%,
led by the non-oil sector. Yes, non-oil sector, and the “diversification”
reported in the recently re-based GDP happened within the last 16 years. Will
the economy more than double in the next 12 years under the APC? For me, if
only the APC can double the size of GDP from about $550 billion to $1.1
trillion in 12 -16 years, and further half the poverty index, Nigeria will
indeed be on course to be one of the largest 10 economies in the world by the
end of this century.
As at 1999 when PDP came to power, Nigeria was largely a pariah
state still lucky to have survived as one indivisible sovereign, especially in
the context of the struggle by NADECO and restiveness in many parts of the
country. On corruption, Transparency International scored it 1.6 out of 10 and
ranked 98 out of 99 countries in 1999. Nigeria was listed among four countries
that were non-compliant on the anti-money laundering rules by the Financial
Action Task Force (FATF). We could not service our external debt and relied on
stressful rescheduling, with all the intrusive donor conditionality. Poverty
was estimated at 70%, and unemployment at nearly 20%. The 1990s will go down in
our economic history as the decade of stagnation: when per capita income growth
was zero. Average oil price in May 1999 when President Obasanjo took over was
$15.24 while stock of reserves was about $5 billion.
After 16 years, several challenges remain, and some have even
worsened (especially insecurity). Although President Jonathan’s regime had the
worst economic management relative to the resources at its disposal, it must be
stressed that tremendous progress was made in the aggregate 16 years of PDP
government. Yes, it should have left more than $100 billion in reserves but
left only $30 billion (still about six times of what it met). We also wish that
Jonathan’s team did not leave Nigeria with an unprecedented rate of debt
accumulation. But, according to statistics from NBS, the PDP handed over a $550
billion economy (largest in Africa and 26th in the world), with 7.5%
unemployment rate (better than European Union, France, Sweden, Belgium, etc.
although the underemployment figure is much higher); 32%?? poverty rate (as
claimed by the former Finance Minister, or 61%??: NBS needs to clarify this
claim); a stock of reserves of $30 billion; GDP growth rate averaging 6% over
last 12 years; a relatively more diversified economy, with ICT penetration from
0.2% to over 60%, and a new contributory pension scheme now with trillions of
Naira in pension fund. Our external debt is down although total debt stock is
escalating. Our Gini coefficient (degree of inequality) is not different from
China’s. Nigeria has consolidated and stronger banking system that currently
finances both government debt and the private sector, with a relatively vibrant
capital market. The capitalization of the Nigerian Stock Exchange grew from
less than N1 trillion to N12 trillion as at handover. For the first time,
Nigerian economy is now rated by credit rating agencies (Fitch, and Standard
and Poor’s). Even on corruption perception, Nigeria is far better today than in
1999, and PDP created the two major anti-corruption agencies--- ICPC and EFCC,
and as at 2014 TI scored Nigeria 2.7 and ranked 136 out of 175 countries. PDP
secured debt relief for Nigeria, thereby relieving Nigeria from the
stranglehold of the IMF/World Bank policy conditionality. APC does not
have to negotiate with Washington on many economic policies. The list is long.
The point, therefore, is that despite the fall in oil price, APC is starting
from a much stronger base than PDP did in 1999 and the challenge now is to do
far better. In the coming years, Nigerians will be asking APC to show us their
figures!
III: Avoiding the Mistakes of the “Old” Buharinomics
Nigeria desperately needs the moral force/Spartan discipline and leadership of PMB at this time to fight corruption, terrorism, and hopefully begin to reconstruct the values of a people gone astray. On the economy, it is not going to be an easy transition for PMB. Igbos have a proverb that one does not learn to use the left hand at old age, but my prayer is that for the sake of Nigeria, he would have to do so and quickly too. Many great world leaders have had to undergo this personal transformation to adapt and exploit the levers provided by how the real world economy actually works in order to prosper their people. The former socialist/communist regimes of China and Russia are making tremendous progress on the move to competitive market economies. Many of us started off differently, and I actually made a career (with several books and articles) as an unrepentant critic of the IMF/World Bank’s structural adjustment programs (SAP) in Africa even while doing my hardcore economics work. But we have remained pragmatic intellectuals!
Nigeria desperately needs the moral force/Spartan discipline and leadership of PMB at this time to fight corruption, terrorism, and hopefully begin to reconstruct the values of a people gone astray. On the economy, it is not going to be an easy transition for PMB. Igbos have a proverb that one does not learn to use the left hand at old age, but my prayer is that for the sake of Nigeria, he would have to do so and quickly too. Many great world leaders have had to undergo this personal transformation to adapt and exploit the levers provided by how the real world economy actually works in order to prosper their people. The former socialist/communist regimes of China and Russia are making tremendous progress on the move to competitive market economies. Many of us started off differently, and I actually made a career (with several books and articles) as an unrepentant critic of the IMF/World Bank’s structural adjustment programs (SAP) in Africa even while doing my hardcore economics work. But we have remained pragmatic intellectuals!
When PMB first came to power in 1984-85, the nation was as well
in crisis. He did so much within the short time especially on anti-corruption
and restoration of national discipline. He inherited a command and control
economic policy regime and deepened it (capital, exchange, and price controls;
import licensing; indiscriminate ban on imports, rationing of essential
commodities; government ownership and control of so-called ‘commanding heights
of the economy’—banks and insurance, telecommunications, airline, refineries,
roads and transport, even manufacturing companies, etc). I recall that it was
something like a criminal offense then to be in possession of foreign currency.
Exchange rate, interest rate, petrol price and several other prices were
largely fixed. In the face of continuing shocks especially the fall in oil
prices (in the face of huge debt service payments), relative prices were not
allowed to adjust to restore internal and external balances. Rather, even more
controls were imposed with all the gargantuan distortions in the economy (and
industrial capacity utilization was largely below 20%) and as government could
not pay salaries, massive retrenchment of workers was undertaken, but the
economic crisis worsened and Nigeria was on the brink of bankruptcy. The
economy imploded big time. Unemployment and poverty worsened. It did not work.
The successor government faced little choice but to liberalize the economy
under the structural adjustment programme (SAP) and Nigeria began the journey
to a modern market economy. Of course, the journey has been checkered, and
naturally is still a work in progress.
Since 1986, Nigerian economy has changed a lot, and my reading
is that there is a broad consensus on continuing progress towards a competitive
(probably also compassionate) market economy framework. From the snippets
of policy since the new government came, there is a growing perception of
nostalgia, reminiscing of the ‘old good days’ pre-1986. There seems to be
a growing tension between a tendency to return to the past versus a progressive
match to the future. I am not sure how the new wine will fit into the old
bottle.
Let me illustrate with a few examples. First, there is this
sense of ambivalence as to whether to remove petrol subsidy or not; and whether
the government is going to run refineries in competition with the private
sector under a subsidy regime or deregulated pricing. I am convinced that PMB
has the moral authority and legitimacy to quickly remove the subsidy and
privatize the refineries. The fundamental case against subsidy removal is not
economic: it is the fact that the citizens do not trust the government to
optimize the use of the proceeds for their welfare. If PMB does not deal with
these issues NOW, I wonder when, if ever. Now that private refineries are
coming up, it is time to privatize public ones. It should have been done years
ago. The huge benefits are not only economic but also an anti-corruption move.
Let government produce a credible agenda of reforms for the sector and let us
have another focused public debate on this subject. You may be amazed that even
the so-called ‘man in the street’ now understands that it no longer makes
sense. The fiscal cost of keeping it is unjustifiable and unsustainable.
Second, one hopes that the report in the media about plans to
resuscitate the moribund Nigerian Airways is not true. One thing the economy
cannot afford at this time of crisis is to invest scarce resources on prestige
or white elephant projects when most federal highways are not motorable
(certainly none in the South East is motorable) or when we need to be investing
tens of billions of dollars per annum on critical infrastructure. Third,
the treasury single account (TSA) is a great initiative, and I congratulate PMB
for that. However, we don’t have to return to the past of having every penny of
government largely redundant in the central bank. For an economy desperately in
need of stimulation, piling up idle cash at the CBN is not sound economics. We
should deploy technology and transparent rules to implement a hub and spoke
model of TSA whereby CBN is the hub while the commercial banks remain the
spoke. Of course there are some benefits of keeping it at CBN, including
possible anti-corruption outcome but as a proverb says, you don’t set your
house ablaze because of the irritation of a rat in the house. We can rid the
system of corruption and realize all the benefits of TSA but still not starve
the economy of the necessary liquidity.
Another minor point relates to communication and body language that jolts the market and undermines confidence in the monetary and financial system. When it was widely publicized on two different occasions within three months that “presidency directs central bank to …..”, it got many players in the economy seriously worried. For sure, Central Bank is not a government unto itself, and despite the statutory ‘autonomy’ or ‘independence’ of the Bank, it must work closely with the Presidency and economic agencies to coordinate macroeconomic policy. Everyone knows that the central bank or INEC cannot survive without the support and active collaboration with the presidency but no one wants to hear that the president has directed INEC on how to conduct an election. There is a reason the APC promised in its manifesto to ensure CBN independence. A central reason is to give the market confidence that the CBN will always act professionally and independently to ensure price and financial stability. It is to avoid the Africa’s Idi Amin phenomenon whereby the government of the day may ‘direct’ the central bank to ‘print’ money or to take other steps injurious to the economy because it wants to retain power. When the market knows or believes that the central bank is merely an extension of the presidency and takes daily ‘directives’ from there, the Bank loses credibility and its monetary policy committee meetings become meaningless. My fear is the precedence: we can never imagine how far future presidents can go in ‘directing’ the central bank on what to do with our commonwealth.
Another minor point relates to communication and body language that jolts the market and undermines confidence in the monetary and financial system. When it was widely publicized on two different occasions within three months that “presidency directs central bank to …..”, it got many players in the economy seriously worried. For sure, Central Bank is not a government unto itself, and despite the statutory ‘autonomy’ or ‘independence’ of the Bank, it must work closely with the Presidency and economic agencies to coordinate macroeconomic policy. Everyone knows that the central bank or INEC cannot survive without the support and active collaboration with the presidency but no one wants to hear that the president has directed INEC on how to conduct an election. There is a reason the APC promised in its manifesto to ensure CBN independence. A central reason is to give the market confidence that the CBN will always act professionally and independently to ensure price and financial stability. It is to avoid the Africa’s Idi Amin phenomenon whereby the government of the day may ‘direct’ the central bank to ‘print’ money or to take other steps injurious to the economy because it wants to retain power. When the market knows or believes that the central bank is merely an extension of the presidency and takes daily ‘directives’ from there, the Bank loses credibility and its monetary policy committee meetings become meaningless. My fear is the precedence: we can never imagine how far future presidents can go in ‘directing’ the central bank on what to do with our commonwealth.
Responding to oil price shock: Exchange and capital controls as
‘directive’ of the Presidency?
For the better part of this year, the external shocks to the
economy have been complicated or accentuated by a gamut of the “tried and failed”
command and control policy regime: de facto fixed exchange rate, largely fixed
CBN monetary policy rate, crude capital controls, veiled form of import bans
through a long list of ‘ineligible for foreign exchange’, de facto scrapping of
domiciliary account established by law, etc. At first, I thought this was the
usual kneejerk response of policymakers to a ‘sudden’ shock. We tried a milder
variant of this for a few months during the 2008/2009 unexpected/unprecedented
global crisis (with global liquidity squeeze and massive capital flight) but
even then, it was communicated as a ‘short-term crisis response’ and it was
quickly dismantled. We now know what works and what doesn’t even at a time of
crisis. As one reads the confusing statements from government in the
media: ‘we won’t devalue’, ‘we won’t devalue for now’, and the emotional debate
about ‘nationalism’ around issues of import ‘bans’ and capital controls, one
wonders whether it is still a ‘short-term crisis response’ or a permanent shift
back to the old policy regime of pre-1986. Even if the government initially
intended it as a short-term measure, interest groups have emerged and are
lobbying to make the policy shift permanent. To add to the confusion, the
policy is communicated as a “directive” from PMB as widely publicized in the
media. Really?
I can write a book on this subject, but for now let me make the
following preliminary comments:
i): How a small, open market economy responds to terms of trade
shocks and not trivial debate on ‘devalue’ or ‘not devalue’: Unfortunately, the
debate around the issue has been wrongly trivialized as whether to ‘devalue’ or
‘not to devalue’ the Naira. Much of what I have read have little basis in
theory or empirical evidence or even counterfactual analysis but a rehash of
the sterile but polemical diatribe between ‘neo-liberals’ and ‘neo-socialists’,
or simply selective partial analysis. This is not helpful and diverts attention
from an otherwise serious policy issue.
The issue basically is how a small, open economy such as ours responds to (ever continuous) shocks in today’s world. In the specific case of Nigeria currently buffeted by a terms of trade shock, with macro imbalances (especially fiscal and current account deficits) as well as supply side constraints, and with the economy skidding to a halt with rising inflation and unemployment, how should relative prices or asset prices (including exchange rate and interest rate) adjust to reflect as well as shape the economic fundamentals? External shocks do not kill an economy: the choice of specific policy regime is what can lessen or worsen the effects of the shock.
The issue basically is how a small, open economy such as ours responds to (ever continuous) shocks in today’s world. In the specific case of Nigeria currently buffeted by a terms of trade shock, with macro imbalances (especially fiscal and current account deficits) as well as supply side constraints, and with the economy skidding to a halt with rising inflation and unemployment, how should relative prices or asset prices (including exchange rate and interest rate) adjust to reflect as well as shape the economic fundamentals? External shocks do not kill an economy: the choice of specific policy regime is what can lessen or worsen the effects of the shock.
How policymakers respond depends on the source of the shock
(nominal/monetary vs terms of trade/real sector shock). If you do not allow
relative prices to adjust when faced by a terms of trade/real sector shocks,
then you put the full burden of adjustment on real variables or quantities
(especially output and employment)--- and they will adjust with vengeance
because you cannot fix price and quantity. Both economic theory and
evidence from around the world are relatively unambiguous: faced with terms of
trade shocks, countries with flexible exchange rate adjust faster and better
and with less negative impact on growth and employment than those with fixed rate.
Put differently, countries that allowed relative prices (including exchange
rate) to become the key “adjusters” during terms of trade shocks have almost
always done better than those that resorted to price (exchange rate) and other
distorting controls.
ii) From Nigeria’s evidence, current policy regime is
inconsistent with objective of growth, job creation and poverty reduction:
Since 1973, Nigeria has had episodes of positive and negative oil price shocks,
and the impacts on the economy have depended on the policy regime. We can
broadly distinguish two policy regimes: when relative prices/flexible exchange
rate and quantities were allowed to adjust simultaneously versus a regime of
relatively inflexible prices/fixed exchange rate and controls. A casual
empiricism nevertheless reveals a powerful result (there are not enough data
points to undertake rigorous econometric work, and so we do the usual ‘before
and after’ evaluation). Whether you compare episodes of positive oil price
shock or episodes of negative shocks, the regime of flexible prices clearly
outperform the regime of fixed rates/controls. Just take an example of the
1981- 91 negative oil price shock with two different regimes of fixed
prices/controls of 1981- 85/mid 1986 vs the SAP era of late 1986 to 1991.
According to data from NBS, the economy did far better under SAP especially in
terms of employment, output growth, poverty and in some years even inflation.
Many people don’t like to hear this but as one of my mentors, Prof. Emmanuel
Edozien always says, you can’t quarrel with statistics. Since 1999,
relative prices have adjusted and this was central to the minimal impact of the
global crisis of 2008/2009. The world economy experienced the ‘great
recession’, and despite the collapse of oil price from $147 to $41 at some
point, Nigeria still grew by over 6%. Compare with the experience of many other
oil-producing countries, and the difference in outcomes relates to the
different policy regimes. Of course, things are a little more complicated but
at least we need to insist that the debate be evidence-based.
iii)The current economic hardship is largely our choice and not
just oil price shock: The current slump of the economy was predictable and
largely avoidable. Just as it happened in 1981-85, the economy has been on a
tailspin. There is now about 4% growth shortfall relative to past trend, and
this cannot be explained by fall in oil prices alone. For the first time
since 1990s, per capita growth rate (on annualized basis) is now negative
implying that poverty is also escalating; capital market has lost trillions,
inflation and unemployment are on the rise. JP Morgan has delisted our local
currency bonds and Barclays is threatening same, while the cost of borrowing
for Nigeria rises. Foreign capital is on the run, while domestic savings is
minuscule. It was ‘headline news’ when FG paid October salaries, while states
are steeping in massive debt.
Policy choices entail costs and benefits, but the preference of
one to another should be based on the “net positive effects”, depending on the
stated objectives. To sustain the current arbitrarily pegged exchange rate will
require a steep rise in interest rate and squeezing of bank credit to the
private sector. Alternatively, intensifying the ever-opaque and distorting
controls and ‘bans’ will also severely harm the private sector. I will be
surprised if the productive sector is not already feeling the heat. The irony
is that it is the small businesses (which have no voice or power) that are
suffering the most. Many are simply being choked to death by the ‘controls’. To
repeat, the current policy regime is inconsistent with the objectives of
creating jobs, growing income and reducing poverty!
iv) There are better ways of implementing capital controls if needed: Some commentators have sought to couch the debate in terms of a struggle between ‘market fundamentalism’ and ‘state capitalism’. Again, this is distracting.
iv) There are better ways of implementing capital controls if needed: Some commentators have sought to couch the debate in terms of a struggle between ‘market fundamentalism’ and ‘state capitalism’. Again, this is distracting.
Every economy is ‘controlled’ in one way or the other. The
question is what kind of controls or regulations can be implemented to address
observed market failures that will be credible, transparent, and without
distorting or perverting the incentive structure so that we can have
sustainably shared prosperity. Uncertainties about what will be in the
‘black-list’ tomorrow or next hurt capital flows, while the retroactive ‘bans’
on pre-existing commitments by banks and producers damage the economy. I support
sensible regulations on cash transactions that prevent money laundering but not
ones that obstruct the payment system. Some countries suffering from the
disruptive effects of massive portfolio flows introduce some taxes on capital
flows. We had speed bumps on capital outflow through mandatory holding period
but this has been scrapped. We seem to be approbating with one hand and
reprobating with the other. The point is to make the rules of capital flow
transparent and credible and announce the transition period. We can’t
exacerbate the impact of external shocks with dramatic policy shocks.
v)Avoiding the Great Mistake of the 1970s: competitive REER is the issue.
v)Avoiding the Great Mistake of the 1970s: competitive REER is the issue.
Perhaps a worrying aspect of the public discourse on exchange
rate is the obsession with the level of nominal exchange rate rather than the
real effective exchange rate (REER) or volatility of exchange rate. The
question that matters most is whether the currency is overvalued or undervalued
in real terms. Government has not shown that N196 per dollar as fixed for
months now is the rate that maintains a target competitive real exchange rate.
Let me make another strong statement: no developing country has
diversified its economy in the last 40 years or so, especially into competitive
manufacturing with an overvalued REER over an extended period of time. In the
late 1960s and early 1970s, Nigeria was in every aspect comparable to Indonesia
as agrarian societies before both experienced oil boom in 1973. Books and
articles have been published describing Nigeria’s ‘great mistake of the 1970s’.
Indonesia decided on a deliberate strategy to avoid an overvalued real exchange
rate, while Nigeria fixed its nominal rate with overvalued REER. Our argument
then was that we had nothing but oil to export and therefore would not benefit
from a weak currency regime. Indonesia used weak currency to protect its infant
industries from imports, thereby encouraging domestic production. After two
decades, Indonesia’s export of manufactures accounted for more than 25% of its
exports while Nigeria’s was still less than 1% as was the case at the
beginning. More than 40 years since 1973, the debate in Nigeria has not
changed, while our comparator countries and rest of the world have moved on.
When it suits us, we cite examples of the East Asian countries and the newly
industrializing economies, but conveniently ignore their real exchange rate
strategy. Even the Communist Party in China knows better. Indeed, China and
several Asian countries deliberately keep a weak currency (in real terms) as
instrument to protect their economies from cheap imports, thereby creating a
productive base for the exports in the future. In Nigeria, the logic is going
in the reverse. Oil has indeed been a curse!
vi)Nigeria’s experience of competitive REER and outcome: But
Nigeria has also deliberately experimented with an undervalued REER even during
an export boom (which is typically difficult because of so-called Dutch
disease). As Governor of CBN, we deliberately maintained an undervalued REER, and
even resisted IMF’s advice to shore up the Naira (which would have brought the
nominal rate to around N80 to a dollar instead of N117- N120). Of course, that
would have earned us street populism given Nigerians emotional attachment to
the level of the Naira. But I insisted on not repeating the ‘great mistake of
the 1970s’. This was the secret why we had the highest rate of reserve
accumulation in our history (over $62 billion) even in comparison with other
times of oil price boom (and lower average monthly oil price for the 60
months). It was also central to the massive capital inflows into Nigeria at the
time such that the CBN became a minor supplier of forex in Nigeria: private
sources of forex were dominant (many times we could not sell more than $20 million
at auctions even when we wanted to sell $200m). This undervalued REER plus
stronger banks following consolidation that could finance the emerging private
sector were central to the observed ‘diversification’ of the economy since
2005. Our calculation is that if we did not do this, the exchange rate during
the global crisis would have exceeded N500 per dollar (this story is for
another day). The point here is that we have been through this road
before, and also made conscious efforts to remedy past errors.
vii)Delayed or dysfunctional adjustment is costly: Crude
controls to sustain an artificially fixed exchange rate create permanent
uncertainty and the currency remains under siege: it becomes a dead-weight loss
to the economy! Fixing the rate and reliance on controls to sustain the peg is
a casual way to prove to everyone that the currency is overvalued and
discernible investors exercise their option to ‘wait’ or expect policymakers to
front-load incentives to more than compensate for the future exchange rate
risks they are taking today. In either case, investment and the much needed
capital inflows into the economy wait or as is happening now, continue to flow
out. It is an irony that in the global economy of today with surfeit of
liquidity, Nigeria (with very low savings rate and desperately in need of
foreign savings) is suffering from massive capital flight. What a paradox!
A fundamental issue many analysts miss in the case of Nigeria is the link between exchange rate and government revenue. Alternative paths to exchange rate adjustment could have pumped a few trillions of Naira in extra fiscal revenue into the economy and refueled it. Even if it was just used to pay off the contractor debt, the economy would have been back on its feet. Since N196 is an arbitrary figure, why don’t we fix it at N100 and see if any government in Nigeria will be able to pay salaries. This is a mute but powerful point about deciding the choice of the rate.
A fundamental issue many analysts miss in the case of Nigeria is the link between exchange rate and government revenue. Alternative paths to exchange rate adjustment could have pumped a few trillions of Naira in extra fiscal revenue into the economy and refueled it. Even if it was just used to pay off the contractor debt, the economy would have been back on its feet. Since N196 is an arbitrary figure, why don’t we fix it at N100 and see if any government in Nigeria will be able to pay salaries. This is a mute but powerful point about deciding the choice of the rate.
viii)Lobbying for forex as the new ‘oil rent’ in town?: We
are literally back to a form of import licensing regime, and portfolio carrying
‘agents’ are back in town to ‘lobby’ for forex. While the arbitrary list
of ‘banned’ items has left the economy haemorrhaging, those reaping the rents
are lobbying to make their gains permanent, while others are lobbying to join
the new rent industry. Oil rent is drying up and the new source of easy money
is forex. With a black market premium of about 20%, a successful roundtrip
creates instant jackpot. Furthermore, if a group can get items in their sector
‘banned’, they will reap the monopoly rent instantly. If you stretch the logic
of the ‘ban’, it will be difficult to justify allocation of forex for anything.
After all, you can argue that denial of forex should ‘force’ Nigerians to
produce just any good for that matter at home or patronize substitutes. After
all, during the Nigerian civil war, Biafran engineers were forced by the
blockade to “invent” their own refineries, bombs, etc. So, why don’t we close
our borders and seek to be ‘self-reliant’ in everything (whatever that means!).
No, it is the power and influence of the lobbying groups as well as subjective
preferences of policymakers that determine the content of the list. There is no
objective basis, and I am skeptical of the ‘national interest’ argument. Let me
illustrate with an absurd example. Going by the logic of the ‘bans’, why should
Nigeria allocate forex for school fees, medicals and mortgage abroad when we
have thousands of schools and hundreds of universities; hospitals etc?
So, why not ‘ban’ school fees and medical fees as a way of forcing the
elite to patronize our local schools and hospitals? What about mortgages
abroad? These three items also cost billions of dollars per annum. We won’t
‘ban’ them because they are goods consumed by the powerful elite and
policymakers. That is the problem with this kind of opaque policy regime. So,
where do we stop, and who determines the list? As an anti-corruption
government, APC/PMB must not be unwittingly creating institutions/processes
that by definition are havens for corruption. This policy is creating instant
briefcase millionaires while businesses especially SMEs are dying!
ix)Five Myths about the relationship between exchange
rate/import ban and Nigerian economy: When a lie is repeated very often, it
starts sounding like the truth. Let me add some footnotes to some of the
clichés in the public discourse. First, it is claimed that Nigeria is an
import-dependent (consumption-dominated) economy and therefore a depreciation/devaluation
will not be beneficial. It will take pages to argue against this fallacy but
suffice it to say that it is tautological and superficial. I don’t know how
many countries that do not ‘depend’ on imports, or where consumption does not
dominate aggregate demand. Nigeria’s imports as a share of its GDP do not bear
out the claim. Check out the size of imports of other countries. Furthermore, a
corollary of this argument is that if ‘devaluation’ is harmful, then a
‘revaluation’ should be beneficial. So why don’t we just fix the rate at N1 per
dollar? The issue is that real exchange rate is central to resource allocation
in an economy, as well as capital flows, savings and investment. At the
extreme, exchange rate and tariffs can combine to provide powerful protection
to domestic production against imports. Exchange rate may not be the magic
bullet that cures all ills but getting it wrong can cause major havoc to the
macro economy.
Second, there are exaggerated claims about the inflationary
impact.
Inflationary impact depends on other complementary measures but
the substantive issue is the sacrifice ratio--- what degree of unemployment do
we want to tolerate to achieve a 1% reduction in inflation rate? Evidence from
episodes of ‘high’ currency depreciation does not bear out the exaggerated
inflation fear in Nigeria. The Naira has depreciated by about 22% this year and
the ‘increase’ in inflation has not exceeded 1%. Check out inflation figures
during the SAP era when Naira floated for the first time with hundreds of
percent depreciation. In one year inflation was 5.5%. Even with the massive
liquidity injections during the global crisis of 2008/2009 (as every central
bank did then) plus over 24% depreciation, the ‘increase’ in inflation rate was
only 4%. The issue is whether it was worth the price for preserving employment
and maintaining growth of 6%? Some analysts confuse the price level with
its rate of change (inflation).
The third myth is that crude capital controls ‘save our
reserves’ from being exhausted. I heard the same argument when we were about to
migrate from the retail to the wholesale Dutch auction system (RDAS to WDAS).
Many argued that our reserves would run out in three months, and I insisted
that the opposite would happen, and we won. The market functions on reverse
psychology and incentives. When you have the incentives for economic agents to
bring their forex and they have confidence that your policy regime is
transparent and sustainable, capital would flow in. On the reverse, when they
know that policymakers are panicky, it is a confirmation to everyone that they
have lost control and private capital runs. If people are unsure how they will
take back their money as and when needed, they won’t come in the first
instance. Crude controls become a race to the bottom: as private flows dry up,
the pressure on official forex pool becomes unsustainable thereby leading to
more perverse controls with all the distortions that kill the real economy. A
vicious circle sets in. If the current policy regime continues, I can bet that
policymakers will soon be under pressure to expand the list of items to ‘ban’.
It is simple logic. Alternative adjustment paths could have led to stability in
exchange rate and reserves without the distorting controls and bans.
The fourth myth is that if we don’t fix the rate, the currency
will depreciate without bound. It is a funny arithmetic. Well, incomes and
money supply are not infinite, and so the argument is untenable. As you hit the
liquidity ceiling, the currency will stabilize and might even start
appreciating (in nominal terms). I believe the TSA as implemented, together
with a few other measures would since have stabilized the Naira without the
capital controls.
The fifth myth relates to import ‘bans’. It is claimed that a
country like Nigeria should not import things that it can produce, and that
bans will help the economy. Well, this is not just a theoretical debate.
Nigeria and the world have more than 50 years’ experience to draw from. It
surely appeals to the emotion but that is not how the world works. Otherwise
there would be no World Trade Organization (WTO) to which Nigeria is a member,
and there will be little trade among nations. Nigerians forget that the major
importers of our oil are themselves oil producers. The US has higher oil
reserves and produces more oil than Nigeria and yet for many decades it was a
major importer of our oil. China is also an oil producer. Imagine if most
countries to which we export decide to ‘ban’ Nigeria’s oil on the ground that
they ‘can produce’ it (in quest of their own ‘self-reliance’). The debate in
the world is how countries like Nigeria can build competitive advantages to
produce quality, cheaper goods than others. Besides, analysts need to study
episodes of ‘bans’ in our history and show the sectors/industries that emerged
and survived under the protection of ‘bans’. There are several concessions and
non-tariff barriers (NTBs) available to us under the WTO and other bilateral
agreements that we are not even exploiting. With poor electricity, costly
finance, little research and development (R & D), decadent infrastructure,
insecurity, policy inconsistencies and mostly unemployable graduates of the
educational system, does Nigeria now hope to ‘ban’ its way to prosperity?
x)Clarity on government objectives and CBN to return and focus on its mandate: Government needs to clarify the confusion on its policy regime: is exchange rate an objective, or an instrument or simply a price? Sometimes, you hear officials explaining the ‘agenda to strengthen the Naira'... does this mean we are going into exchange rate targeting? Are we going to target the level of the nominal rate (and what is the target rate?; how do we pick the rate to target)? More specifically, how did we determine that N196 is the ‘appropriate’ level? Why not: N1 or N50 or N140 or N200 or N230, etc? If we are emotionally against ‘high’ figures as exchange rates, why not redenominate the currency--- take away two zeroes and at current rates, exchange rate will instantly range from N1.96 to N2.33 to one dollar? Alternatively, are we targeting the real exchange rate? Between exchange rate, interest rate and inflation, we need clarity as to which one(s) is/are objectives and which one(s) is/are instruments. I do not want to join in criticising the Central Bank because it is not even clear whether the policy regime is from CBN or ‘orders from above’. A proverb says that you don’t tell the king that he is wrong. You rather tell him ‘Our Father, please take a second look at the issue’. That’s all I can say for now!
x)Clarity on government objectives and CBN to return and focus on its mandate: Government needs to clarify the confusion on its policy regime: is exchange rate an objective, or an instrument or simply a price? Sometimes, you hear officials explaining the ‘agenda to strengthen the Naira'... does this mean we are going into exchange rate targeting? Are we going to target the level of the nominal rate (and what is the target rate?; how do we pick the rate to target)? More specifically, how did we determine that N196 is the ‘appropriate’ level? Why not: N1 or N50 or N140 or N200 or N230, etc? If we are emotionally against ‘high’ figures as exchange rates, why not redenominate the currency--- take away two zeroes and at current rates, exchange rate will instantly range from N1.96 to N2.33 to one dollar? Alternatively, are we targeting the real exchange rate? Between exchange rate, interest rate and inflation, we need clarity as to which one(s) is/are objectives and which one(s) is/are instruments. I do not want to join in criticising the Central Bank because it is not even clear whether the policy regime is from CBN or ‘orders from above’. A proverb says that you don’t tell the king that he is wrong. You rather tell him ‘Our Father, please take a second look at the issue’. That’s all I can say for now!
If it is true that CBN was simply “directed”, then it has been
put in a rather untenable situation. But if CBN indeed crafted this policy,
then reasonable people will have serious cause to worry--- even with our recent
experiences? Currently, the CBN suffers from the classic Tinbergen’s problem:
it has far fewer instruments than the myriad of (sometimes confusing)
objectives on its plate. Now that the federal cabinet is in place, I earnestly
pray that CBN will return and focus on its mandate. The fifth function of the
central bank is to provide economic and financial advice to the federal
government. The CBN should lead the charge and advise the government on a
coherent and internally consistent policy strategy. The current one is
not the kind of policy that ‘will work with time or in the long run’. This is
one example where, as Maynard Keynes reminded his critics in the 1930s, “in the
long run, we are all dead”! Sometimes on public policy issues, the sheer ego
can stand in the way of self-correction. We quickly corrected ourselves during
the 2008/2009 crisis. I believe the APC/PMB team loves Nigeria enough that
faced with superior facts or logic, would make necessary changes. Besides, it
is still morning on creation day. Enough said for now!
IV: Towards a “New” Buharinomics
At the end of this century, Nigeria is projected to be the
country with the highest gain in its population (close to one billion and third
most populous country) and has the potentials to become one of the largest 10
economies in the world. But it could also unravel. The time is now, and the
choice is ours. Again, history beckons on PMB--- as the president who came “at
the wrong time” according to him but one who seized the opportunity to make
history. This year, 2015, is the first year of our second 100 years as a
country, and fortuitously Nigerians chose a new leadership this same year –
APC/PMB-- to lead the charge. The challenge is whether the ‘change’ will be
fundamental and as the title of a book suggests, ‘built to last’ or will be
merely tinkering at the margins.
Nigerians and the world are waiting for the big ideas (Agenda) that will drive this change. The APC/PMB leadership comes with two unique opportunities or challenges depending on how one sees them: first, from all prognosis of the future of oil, this government has the chance to lay the foundation for a post-oil economy. This won’t be a coffee party, and requires bold (out of the box) ideas with execution precision. Second, it will be the first government challenged to embark upon disruptive economic change but without the external agencies of coercion and reward. Under SAP, the need for debt rescheduling forced Nigeria to embark upon the IMF/World Bank sanctioned adjustment; while our quest for debt relief led us to embark upon the first IMF’s Policy Support Instrument—PSI). Debt relief has bought us increased policy space, and Nigeria is largely free from the intrusive IMF/World Bank conditionality.
Nigerians and the world are waiting for the big ideas (Agenda) that will drive this change. The APC/PMB leadership comes with two unique opportunities or challenges depending on how one sees them: first, from all prognosis of the future of oil, this government has the chance to lay the foundation for a post-oil economy. This won’t be a coffee party, and requires bold (out of the box) ideas with execution precision. Second, it will be the first government challenged to embark upon disruptive economic change but without the external agencies of coercion and reward. Under SAP, the need for debt rescheduling forced Nigeria to embark upon the IMF/World Bank sanctioned adjustment; while our quest for debt relief led us to embark upon the first IMF’s Policy Support Instrument—PSI). Debt relief has bought us increased policy space, and Nigeria is largely free from the intrusive IMF/World Bank conditionality.
The challenge is how we use such new found ‘freedom’ or ‘policy
independence’. Can we truly discipline ourselves to take tough choices or use
it as license to be suicidal and take us back to the pre-debt relief era?
There must be something in PMB’s natal chart that keeps bringing him back to power as oil prices collapse and the economy/country is in crisis. After his first stint 30 years ago, I believe God has given him a second chance to correct the economic ‘mistakes’ of his first coming and perhaps finally lay the foundation for a truly great country. For me, the ‘mistake’ to correct is to abandon or reform the ‘old Buharinomics’ of command and control economic system. Times have changed, and Nigerian economy is different. Every leader in the world is also adapting to the changing world. Countries such as India, China, Russia, etc. are fast learners and trying to beat everyone to the ‘game’. We must pragmatically play this ‘game’.
There must be something in PMB’s natal chart that keeps bringing him back to power as oil prices collapse and the economy/country is in crisis. After his first stint 30 years ago, I believe God has given him a second chance to correct the economic ‘mistakes’ of his first coming and perhaps finally lay the foundation for a truly great country. For me, the ‘mistake’ to correct is to abandon or reform the ‘old Buharinomics’ of command and control economic system. Times have changed, and Nigerian economy is different. Every leader in the world is also adapting to the changing world. Countries such as India, China, Russia, etc. are fast learners and trying to beat everyone to the ‘game’. We must pragmatically play this ‘game’.
Our goal in this lecture is not to outline the elements of the
“new” Buharinomics. We expect PMB and his new cabinet, especially the team on
the economy, to unveil it soon. After that, we can join the debate. Our central
argument so far is that it has to be ‘new and bold’, and surely dismantling
several of the policy concoctions that are badly hurting the economy now should
be the starting point.
There are a few issues I would, however, wish to draw the
attention of the team as they craft the ‘new’ agenda. In thinking about the
competitiveness of an economy, I use an architectural framework that organizes
the issues around the meta-level; meso-macro level; and micro level. Let me
highlight a few salient issues on the meta level and meso-macro level.
a) Building to Last--- meta-level socio-political governance
infrastructure
The castle of the new Buharinomics cannot be built in the air. There is a proverb that one must first secure the ground before struggling for the mat. Unfortunately, the ground on which we hope to construct our 100 storey building of hope is shaky and shifting. Nigeria is at war with itself, and is currently on the ‘High Alert’ list of Failed/Fragile States. When the Funds for Peace (US) first published its ‘Failed States Index’ in 2005, Nigeria was ranked 54 out 76 countries--- and Nigerians screamed to high heavens to condemn the ranking. Every year since then, our ranking has deteriorated and in 2015, Nigeria has been ranked 14 out of 178 countries (the first 13 are: 1. South Sudan; 2. Somalia; 3. Central African Rep.; 4. Sudan; 5. Congo DR; 6. Chad; 7. Yemen; 8. Syria; 9. Afghanistan; 10. Guinea; 11. Haiti; 12. Iraq; 13. Pakistan). As one studies the 12 clusters of variables used in constructing the index, we are challenged to ponder the outlook for the sustainability of change. Surprisingly, this ignoble status of Nigeria as a ‘High Alert’ failed state (bequeathed by PDP) does not even feature in our public discourse.
The castle of the new Buharinomics cannot be built in the air. There is a proverb that one must first secure the ground before struggling for the mat. Unfortunately, the ground on which we hope to construct our 100 storey building of hope is shaky and shifting. Nigeria is at war with itself, and is currently on the ‘High Alert’ list of Failed/Fragile States. When the Funds for Peace (US) first published its ‘Failed States Index’ in 2005, Nigeria was ranked 54 out 76 countries--- and Nigerians screamed to high heavens to condemn the ranking. Every year since then, our ranking has deteriorated and in 2015, Nigeria has been ranked 14 out of 178 countries (the first 13 are: 1. South Sudan; 2. Somalia; 3. Central African Rep.; 4. Sudan; 5. Congo DR; 6. Chad; 7. Yemen; 8. Syria; 9. Afghanistan; 10. Guinea; 11. Haiti; 12. Iraq; 13. Pakistan). As one studies the 12 clusters of variables used in constructing the index, we are challenged to ponder the outlook for the sustainability of change. Surprisingly, this ignoble status of Nigeria as a ‘High Alert’ failed state (bequeathed by PDP) does not even feature in our public discourse.
But no sustainable economic progress can happen in this context.
The sustained June 12 protests largely contributed to the economic stagnation
decade of the 1990s. The North East economy was grossly degraded in a matter of
months. The South East has been desolate with kidnappers holding sway and most
of the elite largely in ‘exile’, and now a resurgent movement for Biafra. Thus,
whether it is Boko Haram and its quest for a Caliphate (with over 1.5 million
internally displaced persons (IDPs); calls for Oduduwa country; increasing
tension between the Fulani herdsmen and their ‘hosts’; the resurgence of
Biafra; etc, there is something we can no longer ignore.
The previous governments lived in denial but there has been a simmering undercurrent and threat to long-term sustainability. We have arrested, detained, imprisoned, even gunned and bombed the ‘agitators’ but the agitations rather rise in direct proportion to the use of force applied. Conventional approach of deploying force and fear have not worked, and probably won’t. We have sought to drive the conversation underground. Oil boom has bought us some apparent peace of the graveyard and yet our yearly ranking deteriorates. As we transit to a post-oil economy with all the hardship that comes with the drastic adjustment for a people/elite already glued to certain entitlements, I don’t know how the dynamics will play out. It is now time to do what people do in a democracy: dialogue and negotiate openly! Yes, it is time for a Commission to coordinate the open national conversation. I believe that the late Ahmadu Bello was right when he disagreed with Nnamdi Azikiwe, suggesting that we should rather seek to ‘understand’ rather than pretend to ‘forget’ our differences. I will add that we should work hard to urgently design institutions to address those differences/grievances in a transparent manner. It will be the first sign that we want to ‘build to last’.
The previous governments lived in denial but there has been a simmering undercurrent and threat to long-term sustainability. We have arrested, detained, imprisoned, even gunned and bombed the ‘agitators’ but the agitations rather rise in direct proportion to the use of force applied. Conventional approach of deploying force and fear have not worked, and probably won’t. We have sought to drive the conversation underground. Oil boom has bought us some apparent peace of the graveyard and yet our yearly ranking deteriorates. As we transit to a post-oil economy with all the hardship that comes with the drastic adjustment for a people/elite already glued to certain entitlements, I don’t know how the dynamics will play out. It is now time to do what people do in a democracy: dialogue and negotiate openly! Yes, it is time for a Commission to coordinate the open national conversation. I believe that the late Ahmadu Bello was right when he disagreed with Nnamdi Azikiwe, suggesting that we should rather seek to ‘understand’ rather than pretend to ‘forget’ our differences. I will add that we should work hard to urgently design institutions to address those differences/grievances in a transparent manner. It will be the first sign that we want to ‘build to last’.
A2) Institutions for a competitive, productive economy?
It is evident that PMB cares deeply for systemic change, especially national discipline and anti-corruption. These are critical. But some might argue that to an extent these are symptoms of a dysfunctional system design. Let us get to the roots! Nigeria’s unitary federalism with its perverse fiscal federalism is designed to share and consume primary resource rents. Easy money from oil kept the parasitic elite together – united by the sharing business. As we seek to transit to a post-oil economy, to what extent can a system designed for consumption become efficient for production? The perverse incentives embedded in our constitution penalize hard work and enterprise. A national economy cannot be competitive if its constituent parts are not competitive. The last national conference report does not go far, but it provides a starting point. To jettison it without a better alternative will be a historic mistake.
It is evident that PMB cares deeply for systemic change, especially national discipline and anti-corruption. These are critical. But some might argue that to an extent these are symptoms of a dysfunctional system design. Let us get to the roots! Nigeria’s unitary federalism with its perverse fiscal federalism is designed to share and consume primary resource rents. Easy money from oil kept the parasitic elite together – united by the sharing business. As we seek to transit to a post-oil economy, to what extent can a system designed for consumption become efficient for production? The perverse incentives embedded in our constitution penalize hard work and enterprise. A national economy cannot be competitive if its constituent parts are not competitive. The last national conference report does not go far, but it provides a starting point. To jettison it without a better alternative will be a historic mistake.
B: Macro-meso level issues:
Let me raise a few issues to consider in the design of the ‘new’ Buharinomics.
Let me raise a few issues to consider in the design of the ‘new’ Buharinomics.
i)Efficient and competitive market economy with a human soul (or
what Komolafe calls ‘social conscience’). Nigeria has come a long way in
developing a market economy and still has a long way to go. If it is not
broken, don’t mend it! President Obasanjo once narrated his conversation with
the late Prime Minister of Singapore. He asked the late Li Kuan Yew to explain
the Singapore’s miracle to him. According to Obasanjo, Li Kuan Yew told him
there was no miracle: all they did was that they got a few things right and
kept doing them for an extended period of time. There is a lesson to learn
here. The ‘new’ Buharinomics must resist the temptation of most new governments
to think that their mandate is to discredit and replace everything they met. Reducing
uncertainties and cost of doing business as well as maintaining macroeconomic
stability remain critical first steps. We must avoid ‘state overload’. In a
regime of weak institutions, entrusting the bureaucracy with excessive
discretion to pick winners is a breeding ground for corruption and crony
capitalism. From Nigeria’s political economy and experience so far, it needs to
become a slogan that “government in business is bad business”!
ii)Fix the broken public finance: This is the elephant in the
room. I don’t envy our new Minister of Finance who must fix the public
treasury. As I listen around, I can hear a sonorous song by all the governments
in response to the current crisis and its popular refrain is: ‘give us more
money to spend’! Given the short-term electoral cycle, it is evident that most
governments want to avoid the painful adjustments required to put back their
public finance on a path of sustainability because that could offend voters and
make them unpopular. Everyone is relying on increased taxation and borrowing.
But the previous government loaded the public finance with an overload of debt
at a time of unprecedented oil boom. The leg-room for more debt is there but
definitely not much. The PMB team must not treat this oil price shock as temporary
and believe it can borrow its way out of it. We must plan for the long
haul and also keep an eye on the balance sheet of the central bank and
commercial banks vis-à-vis public debt. I worry more about the crowding out of
the private sector as governments compete with it for debt.
The APC/PMB government must establish its reputation on public
finance. Is it going to be the tax, borrow and spend party or a wealth creator?
How does it intend to reorganize government to free up resources? How does it intend
to negotiate or deal with the vested interests in preserving the status quo,
especially the national assembly? State government debt is a time bomb for the
nation. The new team must take a serious look at the Fiscal Responsibility
Act--- it needs serious review and tightening otherwise ‘state bailout’ will
become a permanent feature of our public finance.
I have read a lot of wonderful proposals about a welfare
system--- conditional cash transfers, unemployment benefits, social investment,
etc.
Great ideas! Do we need it? Yes, we do. Can we afford it
at this point in time? I am not sure. I have just a few words of caution.
First, we must avoid the pitfalls of the Western welfare system that has become
a trap for many (created generations of indolent, entitlement-dependent,
non-working households). The government must avoid institutionalizing the
“dash” culture (a culture where people expect something for nothing).
Once you start, a welfare system is not easily reversible. While we
struggle to wean Nigeria off the oil rent, we should not replace it with
another entitlement culture.
Second, we must do the math properly and avoid the Jonathan’s
open air announcement of wage increases before anyone tried to crunch the
numbers. The result was that for five years, the total recurrent expenditure
exceeded total government revenue. Every penny of capital spending was
borrowed. Can APC/PMB reverse the trend and ensure a recurrent expenditure of
no more than 80% of total REVENUE, or alternatively a recurrent of no more than
50-60% of the total budget? Where is the statistics to use for this welfare
payment? We know how states manipulate the school enrollment figures to get
more money from Abuja. There is work to do before you roll out, please.
We recognize the dilemma. There is pressure to fulfil campaign
promises (which are largely untenable and could bankrupt the country) versus
trying to pick the pieces and put them back on a sustainable path. In my
article in January, I stated that none of the two parties would deliver on
their promises given the state of our public finance--- except of course it
wants to be suicidal in tipping us off the fiscal cliff. The APC/PMB team needs
to weigh this carefully. But let us be honest: how many Nigerians voted for PMB
because of the APC manifesto? My reading is that the last presidential election
was more a referendum on President Jonathan’s tenure and a little bit about
Buhari’s moral force as well as the powerful coalition (under a two party
system) that propelled APC to power. It is time to go on a retreat: roll your
sleeves and with your laptops, and start crunching the numbers. So far, they
don’t add up, but your mandate is to make them add up. Already, you have
done a good job of convincing the public that you met a ‘total rot’, and so we
can understand if you tell us you can’t deliver on those promises (although
many of us knew from the beginning). Just come clean and move the country
forward. After all, even during the oil boom, the PDP never delivered on
its election manifesto as well (compare the various glossy election-time
manifestoes with the actual programs implemented). Someday, we shall get there
but for now, you need to get us out of the crisis. The critical first step now
is to regain the lost momentum on growth, and then crunch the numbers on the
‘social spending’ before taking a plunge. It is better to err on the path of a
delay than to rush in and rush out.
iii) Declare National Emergency on Industrialization
iii) Declare National Emergency on Industrialization
The new Buharinomics must articulate the five big
ideas/programmes to drive the vehicle of change. Where are the iroko trees of
the change mantra? Let me suggest that one of them should be a national
emergency action on industrialization. Nigeria’s urbanization rate at 5.2% per
annum is one of the highest in the world, and with a rapidly growing population
and millions entering the labour market every year, creating value-adding jobs
for these clustering urbanites will be a fundamental challenge. We must
maximize the potentials of every sector in job creation including the hitherto
dormant solid minerals sector and then accelerate the transformation of
agriculture. But the overarching emphasis of the APC manifesto on solid
minerals and agriculture as its own ‘new economy’ is misplaced. An Igbo proverb
says that a person who sells a dog and buys a cat still has a squatting animal
in his house. Oil, agriculture, and solid minerals are all primary commodities
subject to extreme volatility. If job creation is the central objective, both
sectors won’t deliver much over the medium term. Indeed, as we modernize
agriculture and its productivity rises, total employment in the sector
declines. Manufacturing and services remain the key for the future.
It will task our policy and execution entrepreneurship to the
limit to break into the club of the newly industrializing countries. China is
now running out its rural cheap labour and manufacturing wages are beginning to
rise. To continue to compete, Chinese firms will have to relocate to cheaper
cost locations (just like the Japanese firms relocated to many East Asian
countries in a phenomenon called the ‘flying geese model’). Nigeria must
position itself to be the preferred location for these flying geese. We need
bold targets, a plan, and actions. For 53 years since the first national
development plan, we have tried all kinds of strategies to industrialize
(including nationalization, indigenization, self-reliance, import-substitution,
free market strategy, etc). There are ample lessons from the rest of the world
and from our own history. We should build on those lessons to now set and
implement an ambitious national plan to industrialize. Indeed, emphasis on
solid minerals and agriculture could become integral part of the
industrialization strategy--- as we should aim to export only processed
minerals and agricultural produce. For example, can APC set a 20 year audacious
agenda (2035) for Nigeria to achieve manufacturing as share of GDP in the
region of 30%, and for manufactured exports to account for at least 20-25% of
exports?
It is a doable target, requiring activist governments at all
levels as promoters. To work, Nigeria would have to unleash state and regional
competition. Attempt to drive it from Abuja will fail as usual. The starting
point is to constitute urgently a team of out-of-the-box thinkers to come up
with a seemingly ‘crazy plan’. For example, the Federal government might have
to rethink its monopoly rights over solid minerals. If I have my way, I would
immediately remove all fees/commissions on capitalization of manufacturing
firms; instantly reduce corporate tax on manufacturing to 10%--- to signal the
national focus to the world; and states to retain 50% of all corporate taxes
from their states as own revenue. I honestly believe that we should seriously
debate the tax code and tax rate. I have a view that we should actually
drastically reduce corporate tax rate at this time: it is too high (let’s
debate!). I am just thinking on my feet, but a little further reflection
will suggest several ‘simple’ but powerful policy changes that can ignite
action beyond the ‘usual’ catalogue of constraints to be removed. Manufacturing
as a share of GDP is minuscule and hence the initial fall in tax revenue will
be insignificant but the revenue will be huge in the future as the sector
explodes. We can limit the national honours in the next five years to appreciate
people who have excelled in creating wealth and jobs. Nigeria needs a war room
and trading floor in the Ministry of Industry, Trade and Investment (akin to
what Ron Brown had in the US under President Clinton) and we need to dismantle
the huge public bureaucracies and give private enterprise a breeding space to
prosper and create jobs. The above is just illustrative, but many of the ideas
that will unleash a boom will require changes to the constitution.
The new Buharinomics must take a position on the EU-ACP Economic
Partnership Agreement (EPA). How will the ECOWAS common market prosper in the
face of EPA? We had a vision for our Naira to become the de facto ECOWAS
currency and I am convinced that Nigeria will ultimately return to a variant of
our four-point strategic agenda for the Naira, including re-denomination of the
currency. As we envisioned under the Financial System Strategy, 2020, Nigeria
can and must become Africa’s financial hub. Government must expedite action in
setting up the international financial centre.
iv) Developmental Exchange rate strategy:
iv) Developmental Exchange rate strategy:
At the heart of the new Buharinomics should be an exchange rate
strategy that avoids the great mistake of the past. The market for nominal
exchange rate in Nigeria is an imperfect market given the position of
government as dominant supplier of forex in most cases. Thus, a ‘market
determined exchange rate’ in the circumstance is both an art and a science. It
requires a great deal of skill to get it right. The objective however is
to have a stable (not fixed) nominal exchange rate that avoids an overvalued
real exchange rate. We must have a path of REER to target, and skillfully
manage the evolution of the nominal exchange rate to maintain a competitive
real exchange rate. In other words, nominal exchange rate adjusts to maintain a
competitive REER. We can learn a lesson here from the Communist Party in China.
This strategy is critical for the success of the industrialization objective,
reserve accumulation, capital inflows, internal and external balance, and
several other macro objectives.
It is in the light of the above that I believe that the current
debate on the exchange rate is the wrong debate. Debating whether to ‘devalue’
or ‘not to devalue’ means we have already accepted a ‘fixed’ exchange rate
system (since devaluation means moving from one fixed point to another). Are
you devaluing from N196 to what, and for how many hours/days/weeks will it
remain fixed? It is the wrong debate. Our position is that Nigeria should
maintain a flexible nominal exchange rate system that avoids an overvaluation
of the real exchange rate. We have done it before, with great benefit to the
economy. The de facto fixture of the exchange rate at N196 is a great mistake.
Conclusion:
Let us conclude. A fundamental challenge to the APC/PMB team is that their’s is an agenda with a deadline. It has basically three annual budgets and no more than 7,000 hours (if it works 8 hours a day) for Nigerians to SEE the change. As the saying goes, you don’t have a second chance to create a first impression. It is going to be a thankless job as no one gets applause for managing an economy in a crisis. But that is what Nigerians employed them to do. Some elected officials make the mistake of postponing fundamental changes until their second term. It backfires often. My advice is to install all the pillars of the disruptive change in the first year and do all the battles and bargaining with relevant interest groups. If the change is a credible one, by the third year, the pain might have turned into a gain. With the full team in place now, we must now turn the page from the Book of Lamentations, and give the people hope that soon, they will start singing from the Psalms of David. For the rest of us, we can only work, watch, and pray that the new Buharinomics can indeed usher the change that Nigeria needs.
Conclusion:
Let us conclude. A fundamental challenge to the APC/PMB team is that their’s is an agenda with a deadline. It has basically three annual budgets and no more than 7,000 hours (if it works 8 hours a day) for Nigerians to SEE the change. As the saying goes, you don’t have a second chance to create a first impression. It is going to be a thankless job as no one gets applause for managing an economy in a crisis. But that is what Nigerians employed them to do. Some elected officials make the mistake of postponing fundamental changes until their second term. It backfires often. My advice is to install all the pillars of the disruptive change in the first year and do all the battles and bargaining with relevant interest groups. If the change is a credible one, by the third year, the pain might have turned into a gain. With the full team in place now, we must now turn the page from the Book of Lamentations, and give the people hope that soon, they will start singing from the Psalms of David. For the rest of us, we can only work, watch, and pray that the new Buharinomics can indeed usher the change that Nigeria needs.
Chukwuma Charles
Soludo, CFR Of African Heritage Institution (AfriHeritage), Enugu delivered a
version of this at the 3rd Anniversary lecture of the RealNews magazine:
Oriental Hotel, Lagos: November 19th, 2015

