“The Bank [FDB] products are now in competition with its non-state counterparts while this may be healthy for the competition, if not structured properly the customers carrying Focused Sector Loans will carry the burden of the Bank absorbing Non-Focused Sector Products. The spill-off effect would be the high cost of funds!”
- Introduction
The Fiji Development Bank (FDB) was established under the Fiji Development Bank Act 1966 on 1st July 1967. The Bank is an autonomous statutory body, the operations of which are controlled by a Board of directors appointed by the Minister of Finance. The Act provides that the functions of the Bank shall be to facilitate and stimulate the promotion and development of natural resources, transportation and other industries and enterprises in Fiji and give special consideration and priority to the economic development of the rural and agricultural sectors of the economy. The Financial Report for 2014 identifies the challenge for the Bank is to remain competitive in the already crowded banking sector. In 2017 during the Bank’s 50th Anniversary celebrations the Government commended the Bank’s partnership in the nation’s progress.
2. Fiji’s Macroeconomic Landscape
Fiji’s GDP growth rate has been uneven for the last two decades 2000-2020. Graph 1.1 below illustrates Fiji’s GDP Annual Growth for the period 1999-2020. Some factors impacting this fluctuation include political and constitutional upheavals, natural disasters, election results and changes in political landscape, externalities in regard to preferential quota access for sugar and textile pricing, global crisis and development frameworks, Fiji’s economies of scale, emigration of skilled workers, inflation, devaluation and the more recent covid-19 restrictions locally and world-wide. The various global and regional growth frameworks has trickled down by triggering development focused national government strategies. As the second largest economy in the region, Fiji hoped to achieve higher rate of sustainable growth targeting five percent (5%) of gross domestic product (GDP). The 5 Year (2017-2021) and 20 Year (2017-2036) National Development Plan promotes the vision of “Transforming Fiji” with inclusive socio-economic development at its heart.
1 Fiji Development Bank Act 1966, section 5.
2 https://tradingeconomics.com/fiji/gdp-growth-annual
3 Such as the United Nations as the Millennium Development Goals (MDGs), Sustainable Development Goals (SGDs), SIDS Accelerated Modalities of Action (SAMOA) Pathway, Forum Compact on Strengthening Development Coordination (Forum Compact)
4 Fiji Strategic Development Plan 2007-2011.
3. The Fiji Development Bank
FDB’s became operative on 1 July 1967, transitioning from the Agricultural and Industrial Loans Board (AILB) which started in 1951 for the purposes of making loans to finance the development of agriculture, crafts and industries. Since its inception, the Bank was accorded virtually broader powers by the Act to facilitate and stimulate the promotion of natural resources, transportation and other industries in Fiji. The Bank’s vision is to be a dynamic financial service provider in the development of Fiji with the mission to provide finance, financial and advisory services to assist in the economic development of Fiji, and in particular in the development of agriculture, commerce and industry.
FDB is the government’s principal development finance institution. This was further highlighted during the occasion of the Bank’s 50th Anniversary celebrations by the Prime Minister on 28th July 2017 when he stated that, “our national development institution – FDB as it stands today – is true to its tag line as a partner in progress to the Fijian Government, and has played a major role in making us the modern, dynamic island economy that we are today.” The Bank is owned by the government and this is reflected through its governance structure as provided below in Structure 1.2
5 Financial Sector Development in the Pacific Developing Member Countries, Volume Two, Country Reports, p.10.
6 FDB 2019 Annual Report, p. 28.
This structure has continuously come under the new public finance analytic review in terms of a future reforms and strategy in terms of independence from Government influence.
4. Tracing the Bank’s Profit and National Growth Rate
The Bank’s net profit for the period 1999-2019 tend to mirror changes in the Bank’s strategic framework and leadership as reflected in the Graph 1.3 below.
Some assumptions on a similar pattern can be derived from the Bank’s profits in 2004-2006, 2014 and 2017 (Graph 1.3) and that of GDP Growth Rate (Graph 1.1). Following Laisenia Qarase’s term as the Bank’s Chief Executive Officer (CEO), incoming CEO’s – Isoa Kaloumaira (1997-2003), Tukana Bovoro (2003-2008), Deve Toganivalu (2008-2017 and Mark Clough (2017-2020) implemented various strategic framework for the Bank in line with Government’s directives. For example, in January 2008 the Government directed the Bank to align it lending activities with development and focus on resource based activities, the Bank swiftly carried out a staff restructure, re-organized its portfolio and introduced operational strategies to address the portfolio shift sought by Government.
Following this the Bank realigned its loan portfolio into two (2) key sectors – (1) Focused and Non-Focused sectors. The Focused Sector portfolio is most closely aligned to the Bank’s mission and vision, while the Non-Focused Sector comprise investment opportunities that are essentially commercial/
7 Ibid at n.8, p.60.
8 1983-1997
9 Include Bank’s Strategic Plan 2009-2011, 2010-2012; 2012-2017; and 2018-2020.
10 FDB 2009 Annual Report 2009, p.5.
corporate and essential for the long term sustainability of the Bank. In 2019, the Bank approved a total loan valued at $187.59m. $87.48m (46.63%) was approved for the Focused Sector and $100.11m (53.37%) for the Non-Focused Sector.
The Government’s Strategic Development Plan 2007-2011 provided that strategies for higher growth in the plan aim to create the additional jobs and improved incomes urgently needed to lift more people out of poverty. The Plan would put some emphasis on natural resource based sectors’ underperformance and tourism as a lead sector and its capacity to drive supporting development in services, construction and manufacturing as well as creating markets for natural resource sectors if they are able to raise their efficiency, product quality and market orientation.
On the other hand, while total Bank assets appear to gradually increase during the last decade from 2010 onwards earlier decrease has been a result of weak business, write-off of non performing accounts and consolidation of the Bank’s assets as part of reform and Reserve Bank of Fiji requirements. The Bank’s Total Assets for the period 1999-2019 as illustrated in Graph 1.4 below.
11 FDB 2019 Annual Report, p.39.
12 FDB 2019 Annual Report, p. 9.
13 Ibid, n.7
5. Analysis: Impacts and Implications on Bank’s Lending Policies
In undertaking this analysis, I came across the following observation:
“A number of constraints inhibit FDB’s growth, including the land tenure system; increasing Government intervention in decision making; the high cost of funds, which puts them at a competitive disadvantage with commercial banks; the narrow skill base; lack of any formal prudential supervision; and the cost of maintaining a branch network in the outer islands.”
An example of this was in 2000 when the entire Board was replaced with new members who had close connections to the Government. It was also reported that the Government intervened into FDB’s operations, seeking to direct lending to poorer rural areas. Furthermore and more critical, is the observation that FDB is an, “institution under some considerable market and political pressure, with growing confusion as to its future role.”
Making a Choice or Striking a Sustainable Balance: Development Financing and Commercial Bank
While I note and submit the issues identified above I will not revisit them. My analysis will focus on consequence of those issues identified and the associated risks to the Bank and more importantly to the people or the customers of the Bank. The assumption is that unless the Bank is clear about its future, it will not be a game-changer. Table 1.5 below shows that given FDB’s role in Fiji’s development it holds only 6.63% of the country’s market shares. This could increase should the Bank become clear with its future role.
14 Ibid, n.8 at p.56
15 Ibid, p.37
16 Ibid
17 FDB 2019 Annual Report
Secondly, Government intervention is not highly unusual in these circumstances. An ADB paper on Strategy, Independence, and Governance of State Owned Enterprises in Asia discusses this very issue through the application of New Public Management (NPM) to State Owned Enterprises (SOEs). The paper puts forward a framework that with SOE’s adopting NPM supported by ownership strategy and independence on an organizational as well as a personal level creates a governance framework that minimizes perverse incentives and maximizes the incentives for SOEs to pursue the three (3) goals while balancing them: “the provision of public or merit goods, the increase of efficiency in providing these goods, and the provision of these goods through an enterprise operating with profits.” Once this governance framework is in place, its review and learning curves from its implementation would allow the Bank, as an SOE, to be a game-changer.
It is my analysis that the Bank lacks this Governance Framework (NPM + Strategy + Independence = A Framework for Governance). In perusing through the Bank’s Annual Reports, it is difficult to trace whether it adheres to the public enterprise principles for SOEs in Fiji as per the Public Enterprises Act 2019.
Finally, due to the lack of Framework of Governance and Public Enterprise Principles, the Bank products (loans) as a public good require some due diligence and restructure. The Bank products are now in competition with its non-state counterparts while this may be healthy for the competition, if not structured properly the customers carrying Focused Sector Loans will carry the burden of the Bank absorbing Non-Focused Sector Products. The spill-off effect would be the high cost of funds. Alternatively, the opportunity cost would be to focus all funds on the Focused Sector for more effective strategy. Graph 1.4 points to the Bank’s total assets and one of the reasons for the decrease trend is the write-off of non-performing accounts. While the Bank is meeting its objective in supporting the Government the customers are beginning to experience implications of change in loan landscape from Focused to Non-Focused Sector. At the heart of this product issue was highlighted by James D. Wolfensohn during his tenure as President of the World Bank from 1995-2000 was that, “the Ugandan government was spending $3 per citizen per year on health care and approximately $17 per citizen per year on paying back debt…I said to myself, This is the economics of a madhouse! It was a debtor’s prison. Our World Bank loans were dragging down the very nations we wanted to help.”
The Bank’s evolving challenge is to continue to identify products that respond to economic conditions, the needs of customers and the direction of Government to develop financial solutions relevant for Fijian individuals, businesses and projects.
18 Henrique Schneider, Strategy, Independence, and Governance of State Owned Enterprises in Asia , ADB Institute Working Paper Series No. 986, August 2019
19 Ibid, – Ownership strategy ties an SOE to its owner, independence aims to strengthen its organization structure as non-state.
20 Ibid, p.12.
21 Ibid.
22 A Global Life by James D. Wolfensohn at p.283
23 FDB 2019 Annual Report.
6. Conclusion and Recommendation: Avoidance of a madhouse Bank!
In conclusion, despite prejudice, stigma and challenges affecting SOE, there are certainly opportunities to be undertaken through bold decisions through its governance structures. The Fiji Development Bank requires an effective governance framework that adheres to NPM to address constraints of increasing Government intervention in decision making; the high cost of funds, which puts them at a competitive disadvantage with commercial banks; the narrow skill base; lack of any formal prudential supervision; and operative costs. Prolonging these constraints will continue to inhibit FDB opportunity as a catalyst and game-changer in the financial sector. For this reason, this case-study puts forward the following recommendation for FDB:
- The Board needs to make a bold decision in terms of its future. The future of FDB is currently not clear in terms of its role as Development Financier and/or as a Commercial Bank;
- Implementation of a Governance Framework acknowledging the different tiers of NPM;
- Visible Implementation of the Public Enterprise Principles;
- Development of relevant and responsive loan products through the appropriate Governance platform and public enterprise principles.
Reviewing the implementation of these recommendations will only improve the Bank’s governance and product development maturity. This paper puts forward the above recommendations as basis for best practice in other similar functioning institutions in Fiji and in the Pacific region.
-End-
24 Recommendation 5 of the “Strengthening Public Financial Management Reform in Pacific Island Countries” a joint product of the World Bank, the New Zealand Ministry of Foreign Affairs and Trade, the Australian Department of Foreign Affairs and Trade, and the Overseas Development Institute.
7. Bibliography
- Strengthening Public Financial Management Reform in Pacific Island Countries, a joint product of the World Bank, the New Zealand Ministry of Foreign Affairs and Trade, the Australian Department of Foreign Affairs and Trade, and the Overseas Development Institute.
- https://www.mckinsey.com/industries/public-and-social-sector/our-insights/improving-performance-at-state-owned-enterprises
- https://tradingeconomics.com/fiji/gdp-growth-annual
- Fiji Strategic Development Plan 2007-2011.
- Financial Sector Development in the Pacific Developing Member Countries, Volume Two, Country Reports.
- FDB Annual Reports 2019, 2009
- Henrique Schneider, Strategy, Independence, and Governance of State Owned Enterprises in Asia , ADB Institute Working Paper Series No. 986, August 2019
- A Global Life by James D. Wolfensohn