Official translation 19 March 2010 THE GOVERNMENT OF THE REPUBLIC OF lITHUANIA RESOLUTION nO 173 ON THE CONVERGENCE PROGRAMME OF LITHUANIA OF 2009 24 February 2010 Vilnius Acting pursuant to Article 7 of Council Regulation (EC) No 1466/97 of 7 July 1997 on the strengthening of the surveillance of budgetary positions and the surveillance and coordination of economic policies (OJ, 2004, Special Edition, Chapter 10, Volume 1, p. 84), as last amended by Council Regulation (EC) No 1055/2005 of 27 June 2005 (OJ L 174, p. 1), which lays down a multilateral surveillance procedure of the European Union Member States carried out in the form of stability and convergence programmes, the Government of the Republic of Lithuania has resolved: 1. To approve the Convergence Programme of Lithuania of 2009 (as appended); 2. To charge the Ministry of Finance with the task of submitting the Convergence Programme of Lithuania of 2009 to the European Commission. Prime Minister                                                                                 Andrius Kubilius Minister of Finance                                                                         Ingrida Šimonytė APPROVED by Resolution No 173 of 24 February 2010 of the Government of the Republic of Lithuania CONVERGENCE PROGRAMME OF LITHUANIA of 2009 I. FINANCIAL POLICY OVERVIEW 1.         The primary task of the fifteenth Government of the Republic of Lithuania in the short term is to get the economic crisis and its consequences under control. 2. The Government of the Republic of Lithuania considers that the most important long-term policy objective is to consolidate public finances and essentially improve the situation in the areas that might ensure an economic breakthrough. The Convergence Programme of Lithuania of 2009 (hereinafter referred to as “the Programme”) projects the economic policy outlined in the Programme of the Government of the Republic of Lithuania approved by Resolution No XI-52 of the Seimas of the Republic of Lithuania of 9 December 2008 (Valstybės žinios (Official Gazette) No 146-5870, 2008) (hereinafter referred to as "the Programme of the Government of the Republic of Lithuania”) as well as in the Law on Approval of Financial Indicators of the State Budget and Municipal Budgets of 2010 (Valstybės žinios (Official Gazette), No 152-6822).  3. The Programme is oriented towards the development of the implementing measures for the short-term and mid-term objectives, namely: 3.1. To implement the budgetary policy ensuring the confidence of the financial markets in the financial stability of the general government, preserving strong confidence in the continuity of the currency board arrangement and ensuring long-term price stability. To implement a result-oriented governance model enabling a more efficient use of resources. 3.2. Upon restoration of the confidence in macroeconomic stability, to accelerate business development and successfully implement the structural reforms necessary for economic sustainability such as the reforms of education and health, reduction of energy dependence on fossil fuel, etc. 3.3. To govern the State in a transparent manner, aiming at a political agreement on the required reforms. 3.4. To seek public support to the declared objectives and its contribution to their implementation. 3.5. To continue the implementation of the economic policy commitments of the exchange rate mechanism II (hereinafter referred to as “ERM II”) and, in the medium term, to achieve sustainable implementation of the criteria, set out in the Treaty on the Functioning of the European Union (OJ 2008 C 115, p. 1), and to prepare for the adoption of the euro. 4. The Programme gives an overview of the recent economic developments in Lithuania, a plan of a medium-term economic policy, an assessment of risks and of the quality of general government finances, and a description of Lithuania’s readiness to overcome the effects of the ageing population. The guidelines of the Lithuanian structural reforms are laid down in the Programme of the Government of the Republic of Lithuania, while the implementation of the structural reform measures will be presented in the annual report on the National Lisbon Strategy Implementation Programme. Implementing the structural reforms envisaged in the Programme of the Government of the Republic of Lithuania, priority will be given to measures that would enable effective reduction of the dependence of the Lithuanian economy on imports without losing productivity. This should reduce the structural current account deficit and save the potential of national income of Lithuanian citizens for domestic consumption and investment. 5. This Programme examines and assesses the preconditions for the achievement of the economic policy goals. The central scenario of the development of the Lithuanian economy is based on the assumption that in 2010 the economy will preserve a stable level of credits to customers.      The Programme has been based on assumptions on euro exchange rate, prices of oil and other raw materials used by the European Commission for the last update of scenarios of the economic development of economic indicators. 6. The national currency litas (hereinafter referred to as “the litas”) exchange rate, fixed against the euro under the currency board arrangement, ensures that the average inflation will in the long run remain close to that in the euro area. 7. As the risk regarding export market shrinkage, lack of flexibility of the construction sector and an abrupt decrease in the current account deficit (hereinafter referred to as “CAD”) has materialized, the goal of keeping deficit within 3 per cent of the gross domestic product (hereinafter referred to as “GDP”) has been temporarily replaced by the objective to correct the situation of an excessive deficit by 2012.  In order to cushion the cycle of the economy, an important task is to further secure cheap funding of investment by reducing risk premium. The budget policy under implementation takes into account the need to preserve the productive investment necessary for economic development. For the general government deficit not to exceed 8.1% of the GDP, the target set for 2010 should aim to stabilize the public finances and to restore the confidence of foreign investors in Lithuania’s business plans, to reduce the interest rates, to stimulate investments in 2010, and to use all the opportunities for laying the foundation for a GDP increase in 2011-2012. Reduction of the general government expenditure and partial tax raise in 2009-2010 are intended to bring back the cheap funding of business circulating assets and investments and to achieve a domestic demand that would fully compensate for the planned reduction of government consumption. The planned frontloading of the European Union (hereinafter referred to as “the EU”) support is already stimulating demand more than the planned general government deficit reduction. The fact that demand is promoted by means of EU support and the loans from the EU and international finance institutions (Council of Europe Development Bank, European Investment Bank and Nordic Investment bank), at the same time reducing the general government deficit, ensures stable funding of the Lithuanian CAD and contributes to the implementation of the economic recovery plan pursued by the EU). 8. Resulting from the reduction of the deficit below the 3% of the GDP limit in 2012, the general government finances will continue to be consolidated by setting a stricter medium-term objective.  Due to the crises the general government debts has been rapidly increasing, therefore to maintain the prospects of the stable general government debt  the  new medium-term target was established: to achieve the structural surplus   of ½% of the GDP. This medium-term objective is tightened taking into account the European Commission’s latest estimates suggesting that the general government debt would approach 113.9% of GDP in 2030, 545.9% of GDP in 2060, unless the fiscal policy is tightened. 9. Lithuania pursues the acceleration of housing renovation that would contribute to an efficient use of heat and reduction of the economy’s dependence on the growing prices of natural gas. The health and education reforms ensuring higher quality and enabling attraction of additional means from private sources will be implemented at a higher speed. II. economic outlook Assumptions 10. Global financial market turbulences strengthened a natural cyclical slow-down of GDP growth that started in early 2008. Global financial market turbulences had impact on crediting: increased prices and decreased availability of financial resources, stricter lending conditions in banks due to the changes in risk weighting etc. In 2009 greater than before uncertainty and negative prospects of the economic development resulted in decreased borrowing demand and borrowing stopped promoting consumption and investment as it was in previous years. Efforts to reduce the existing liabilities resulted in contracted consumption and investment. The central scenario of economic development takes into account the Anti-crisis Plan developed by the Government of the Republic of Lithuania, the planned frontloading of the use of EU assistance and the pursued structural reforms. The central scenario was based on the assumption that the impact of the reforms allows strengthening the potential GDP, however a strong positive effect of all the measures in 2009 was insufficient to avoid the economic recession due to the growth of inflation, expansion of import and accumulation of external imbalance over the last 6 years. On the other hand, preliminary data and contracts with private sector regarding the frontloading of the use of EU assistance allow to expect that economy recovery impulse in 2010-2011 will be more powerful than in 2009 and that it will be sufficient to avoid further rapid shrinking of the economy. As, due to decreased interest rate and increased export, positive risks lacked sufficient statistical evidence and could not be used as the basis for the central development scenario that laid the grounds for the approval of the 2010 Budget, in 2010 the general government will get extra revenues. Following the assumption of the continuation of the general government finance consolidation, these extra revenues will have to be used for the implementation of stricter deficit targets. The key assumptions about the external economic environment in implementing the EU fiscal monitoring procedure and in seeking to ensure the comparability of economic forecasts correspond to the external environment assumptions published by the European Commission. Table 1. Key assumptions Indicator 2008 2009 2010 2011 2012 Short-term interest rates 7.4 7.8 4.9 5.8 5.6 Long-term interest rates 9 14 7.7 8 7.5 USD/EUR exchange rate (euro zone and ERM II countries) 1.37 1.48 1.36 1,36 1.36 Nominal effective exchange rate 1,4 0 0 0 0 Exchange rate vis-à-vis the euro (annual average) (for countries not in euro area or ERM II) N.A. N.A. N.A. N.A. N.A. Global GDP growth (excl. EU), % 3 -0.4 3.8 4.1 4.1 EU GDP growth, % 0.8 -4.1 0.7 1,6 1.6 Growth of relevant foreign markets, % 0.8 -4.1 0.7 1,6 1.6 World import growth (excl. EU), % 4.1 -12.6 4.6 5 5 Oil prices (Brent, USD/barrel) 98.5 61.3 76.5 80.5 80.5 Sources: Ministry of Finance, European Central Bank, European Commission The assumption about labour market flexibility ensures that the decrease of the number of the employed in 2009-2010 will be only temporal and in 2011 the unemployment will start shrinking. An assumption is made that the stabilisation of the labour market because of the self-employment contributing to the stabilisation of the number of the employed in the 4th quarter of 2009, when the average number of employees in full-time units continued to rapidly decrease. The medium-term economy growth to a large extent depends on the assumption that the economy will undergo restructurisation and in 2010-2011 the risk of potential structural deficit of the current account will be eliminated. An assumption is made that the return of the Lithuanian export volume that started in the 3rd quarter of 2009 due to the EU economy recovery will continue and in 2010 it will achieve 85% of the pre-crisis level. Following the assumption that the investment will revitalise the use of the EU support, the planned volume of which in 2009-2010 is about 3.7 percentage point of the GDP. The updated central economic development scenario the potential growth of the economy depends on the speed of the implementation of structural reforms, interest rate decrease and investment increase up to the multi-annual average. Monetary and exchange rate policy 11. Lithuania’s monetary policy is established under the terms of a fixed exchange rate. Such an exchange rate regime increases confidence in Lithuania’s economic policy and together with a competitive economic environment allows pursuing relative long-term price stability. Openness of the economy, relative flexibility of prices and wages, exchange rate importance for the price stability are those features of Lithuania’s economy that contribute to the successful application of the fixed exchange rate strategy. When becoming an EU member state Lithuania undertook to replace the litas with the EU currency euro. Lithuania has been participating in the ERM II since 28 June 2004, by implementing a unilateral commitment to maintain a fixed exchange rate regime and a fixed national currency exchange rate vis-à-vis the euro. Lithuania’s monetary and exchange rate policy goals remain unchanged. Lithuania will further maintain a strictly fixed litas exchange rate vis-à-vis the euro, and will seek to join the euro area as soon as the convergence criteria are met. The Bank of Lithuania maintains the level of institutional preparation which under favourable macroeconomic conditions will ensure smooth and rapid currency changeover. Overview of ERM II implementation 12. The Government of the Republic of Lithuania had to implement economic policy in line with the commitments made on 28 June 2004, when it joined ERM II. The general government deficit in 2005 was reduced by one percentage point, to 0.5 per cent of the GDP. In 2006, the balancing of the general government sector was only approximate. Adopted on 8 November 2007, the Law on Fiscal Discipline of the Republic of Lithuania (Valstybės žinios (Official Gazette) No 120-4881, 2007) stipulates that general government finances in the medium-term must be managed in a way that ensures surplus or a nearly balanced general government balance indicator. In addition, the Law on Fiscal Discipline of the Republic of Lithuania sets forth measures necessary for the implementation of the opinion of the EU Council on Lithuanian convergence programmes. Before the financial crisis much attention was devoted to prevention measures aimed at bank risk management. For this reason additional requirements for the strengthening of internal control and risk management procedures were implemented, new management requirements for previously not regulated types of risk as well as additional management requirements for operating risk were adopted. Special attention was devoted to the strengthening of bank capital basis. On 1 January 2010 capital adequacy indicator of the bank system was approx. 14.1 per cent (the minimum norm fixed by the Bank of Lithuania is 8 per cent). The norm limiting the risk of the maximum open position in foreign currency and precious metals was fixed for Lithuania’s credit institutions. The maximum common (except euros) open position should not exceed 25 per cent of the bank capital; the maximum open position of one currency (except euros) or precious metals should not exceed 15 per cent of the bank capital. Banks are required to meet this norm every day. Aiming to increase stability of the financial system, in 22 July 2009 the Seimas of the Republic of Lithuania adopted the Law on the Sustainability of Finances of the Republic of Lithuania (Valstybės žinios (Official Gazette) No. 93-3985, 2009). This Law provides various measures aimed at providing support to credit institutions: State guarantees and redemption of bank property, participation of the State in bank capital, taking of bank shares to meet public needs. The anticipated economic environment in 2009 became different from the one that prevailed when joining ERM II, which makes the obligations as regards speedier implementation of the structural reforms a priority. The economic recession which began in 2008 prevents the achievement of a balanced budget, eliminates credit increase and the ERM is replaced by current account surplus. Measures that will impose an obligation to follow an anti-cyclic and anti-inflation budget policy are being planned: in 2010 efforts will be made to adopt adequate legislation. Other structural reform implementing measures will be specified in 2010 in the revised annual report on the National Lisbon Strategy Implementation Programme. Reforms in the fields of education, health care, environmental protection, science and innovation promotion as well as business environment are envisaged. Economic cycle and a central medium-term economy development scenario The real sector 13. Since the middle of 2008 in Lithuania there appeared signs of slower growth of economy sectors resulting in decline at the end of 2008. Due to natural slowdown of business cycle and impact of global financial crisis the economic equilibrium of finance, real estate and construction markets was disturbed; the change in demand made significant impact on the development of industry and trade. At present Lithuania’s economy is influenced by the consequences of the impact of rapid economy growth in recent years and increasing global financial crisis on the real economy; these consequences resulted in a sudden slowdown of demand and supply of money on loan, decline in domestic trade and production, decline in investments and correction of housing market, increasing unemployment. The confusion in the financial sector of the USA which started at the end of July in 2007 became global in September 2008 and resulted in decline of Lithuania’s trade partners in EU and other markets, decline in demand for Lithuanian goods and services abroad. Due to uncertainties and lower external demand the GDP declined to 15 per cent in 2009. However, in the third and fourth quarters of 2009 the quarterly GDP increased (when the influence of the season and working days was eliminated): in the third quarter GDP increased by 6.1 per cent; in the fourth quarter GDP increased by 0.1 per cent. Technically the country was successful in fighting the decline. The annual decline of quarterly GDP will remain in the first quarter of 2010, however in the second and third quarters of 2010 the annual growth of quarterly indicators will make up 4 per cent. On the other hand, in case of failure to receive statistical data on new growth factors, the annual growth in the fourth quarter would significantly decline. Investment environment suffers from a number of factors related to the overall economic situation and decline of demand in domestic and foreign markets as well as to dominating uncertainty about the sustainability of economy recovery. Investments sensitively and rapidly react to changes in economic conditions. In times of economic growth, in 2007, highly optimistic expectations and favourable credit terms resulted in the share of GDP (that is made of investments) increase up to 30.9 per cent. Due to strict credit terms, apparent decline in domestic demand and doubts about demand on the global market made companies to abandon their investment plans or to postpone their implementation for an unlimited period. During nine months in 2009 the gross fixed capital formation declined approx. by 40 per cent compared to the same period last year. The companies started to adjust their investment plans already in the middle of 2008: investments rapidly increased until early 2008 (during 2005–2007 by 17.9 per cent on average); the third quarter of 2009 was the sixth quarter in a row with a negative annual investment growth rate. The slowdown of investments into production means which started in early 2008 and slowdown of investments into buildings and constructions other than residential which became more intense during the last quarters of 2009 destined around half of such a decline each. Private consumption, that increased rapidly until 2007, began to decline at the end of 2008 and declined even more rapidly in 2009: during the first quarter of 2009 private consumption declined by 15.7 per cent, during the second quarter it declined by 17.5 per cent and during the third quarter it declined by 19 per cent compared with the same period in 2008. Private consumption declined due to uncertain economic situation, increasing unemployment, decreasing income, consumers’ no-confidence, and changes in credit conditions. Commercial banks introduced stricter loan terms due to economic situation in the regions. Increased uncertainty in 2009 and negative economy development perspectives resulted in lower demand on borrowing. Aim to reduce existing debts resulted in lower consumption. In addition to huge shrinkage of domestic demand Lithuania as well as many other EU open economies experienced a shock from export market decline. Decline of demand in Lithuania’s key export markets, devaluation of currencies of neighbouring countries resulted in serious reduction of volume and value (around 30 per cent) of Lithuania’s export in the first half of 2009, however in August there were positive changes in export figures. Responding to economy revitalizing measures implemented by EU Member States and first recovery signs of big EU economies, the volume of Lithuania’s export began to grow in the third quarter of 2009. Certain export oriented industry sectors (machine and equipment, chemicals (fertilizers), metal manufacture) that received huge investments in the times of rapid economy growth and that accumulated great volumes of unused production capacity, will be able to recover as soon as external demand will start growing. The basis for economy recovery foreseen in the central economy development scenario is the implementation of the country‘s economy promotion plan, global stabilization of credit market, sustainability of trade partners‘ recovery and trust in efforts to strengthen finances of the Lithuania‘s general government sector. Table 2. Macroeconomic indicators Indicator ESA* code Indicator value in 2008, million LTL Change, in % 2008 2009 2010 2011 2012 Real GDP B1*g 81020.1 2.8 -15** 1.6 3.2 1.2 Nominal GDP B1*g 111189.8 12.7 -16.9** 1.5 3.9 2.4 Components of real GDP Private consumption expenditure + NPISHs P.3 58059 3.6 -17.9 -6.4 2.1 2.8 Government consumption expenditure P.3 14522.9 7.9 -2 -1.7 -10 0 Gross fixed capital formation P.51 21579.6 -6.5 -38 14.5 29.1 2 Changes in inventories and net acquisition of valuables (% of GDP) P.52+P.53 N.A. N.A. N.A. N.A. N.A. N.A. Exports of goods and services P.6 50366.6 12.2 -16.7 13.5 3.1 1.7 Imports of goods and services P.7 66330.3 10,5 -29.9 6.6 6.8 3.2 Contributions to real GDP growth, % Final domestic demand – 3,3 -26.4 -1.9 5.1 2.1 Changes in inventories and net acquisition of valuables P.52+P.53 N.A. N.A. N.A. N.A. N.A. N.A. Balance of goods and services B.11 – -0.5 11.4 3.5 -1.9 -0.8 Sources: Statistics Lithuania under the Government of the Republic of Lithuania (hereinafter Statistics Lithuania, Ministry of Finance *European System of Accounts **Preliminary data. Inflation 14. Since the middle of 2008 annual inflation started to decline in the context of changes in global prices for food stocks and energy. When in January of 2009 higher excise taxes on fuel and alcohol as well as value added tax (hereinafter VAT) were introduced, inflation rapidly increased, however, later it rapidly declined. In October inflation was only 1 per cent (in January it was 9.5 per cent, and in June of 2008 it reached the peak over the last few years and made up 12.7 per cent). From April to August prices gradually declined each month, however, in September they increased due to higher standard VAT tariff and excise tax on cigarettes; in October they declined again. In 2009 the lowest headline annual inflation was influenced by lower net annual inflation and slower annual pace of prices for food products, beverages and tobacco increase, except July and October, when annual inflation declined due to lower administered prices. When wages and purchasing power of consumers declined, pressure of demand on net inflation rapidly weakened. It was evident from data on income from sales of service enterprises and retail trade. In 2009 net annual inflation declined, except September, when it increased a bit due to higher VAT tariff. In October prices of commodity goods and services on the market already were lower than a year ago. Changes in prices of food products and non-alcoholic beverages resulted in speedy reduction of headline inflation. As from July of 2009 the abovementioned prices were lower than a year ago; each month they declined starting from March (except September, presumably because of higher VAT tariff). Influence of prices of alcoholic beverages and tobacco products on annual inflation remained almost stable: it increased in September and October due to higher excise tax on cigarettes. Excise taxes on alcoholic beverages were increased in early 2009; excise taxes on cigarettes were increased two times in 2009 (in March and September), the last increase was made in accordance to minimum level set by the EU. Prices of tobacco and alcoholic beverages that are subject to excise taxes grew further. The influence of administered prices on annual inflation weakened in 2009, especially in July and October. As from July of 2009 natural gas and electricity prices for consumers’ living needs declined, thus in July the general price level fell more than during previous months (by 0.8 per cent; from April to June it fell by 0.1–0.3 per cent). In early 2009 the price of electricity for residents increased by 13.1 per cent, natural gas – by 23.5 per cent; in July the price for electricity declined by 5.8 per cent, natural gas – by 15.9 per cent. In October 2009 heating prices declined by 12.6 per cent resulting in much lower headline annual inflation compared with figures in September. During the first ten months of 2009 fuel prices were lower than a year ago, however, their annual decline weakened due to vanishing favourable effect of the base that appeared from rapid increase of prices during the first half of 2008 (in July of 2008 global oil price reached the peak of all times). Following the reduction of excise tariff to meet 2008 level, in August diesel fuel prices declined (as from January of 2009 diesel fuel was subject to tariff that Lithuania could reach until the beginning of 2013 in line with its commitments to EU). Further increase of this excise tax will depend on the existing commitments to EU and on influence of reduced excise tax on trade in diesel fuel. Table 3. Price indicators Indicator ESA code Indicator value in 2008 Change, in % 2008 2009 2010 2011 2012 1. GDP deflator 137.2 9.7 -2.1 -0.1 0.7 1.1 2. Private consumption deflator 124.7 9.7 4.5 -0.1 1.2 1.5 3. HICP* (average annual change) 111.1 11.1 4.2 -1 1 1.5 4. Public consumption deflator 147.8 12.9 -11.5 -5 -5.3 -0.3 5. Investment deflator 129.7 7.2 -3.4 -1.1 3.4 0.9 6. Export price deflator (goods and services) 133 11.9 -14.2 0 -0.1 1 7. Import price deflator (goods and services) 120.1 8.4 -12.4 -1.8 0.3 1.3 Sources: Statistics Lithuania, Ministry of Finance. *HICP - Harmonised Index of Consumer Prices. The euro and litas exchange rate fixed following the currency board arrangement guarantees that eventually the average inflation will remain close to the euro zone inflation. The slowdown of the credit increase seen in the first quarter of 2008 was getting stronger in 2009, thus it is planned that at the end of 2011, when the impact of both the tobacco excise and the decommissioning of the Ignalina Nuclear Power Plant (hereinafter – Ignalina NPP) softens, the deflation pressure will intensify due to the need to save funds in order to return loans taken during the times of economic growth, high unemployment and stable wages. Moreover, domestic producers will not evade the deflation pressure even in 2010 but the decommissioning of the Ignalina NPP will result in the inflation approximately 0.6 percentage points higher because of the increased electricity price. Part of the increasing electricity price will be offset by deflation processes in other sectors. Business sector is expected to aim at compensating increased electricity expenses by reducing other expenditure. Slower decline of wages, more rapid decline of unemployment, rapidly growing oil and gas prices would weaken deflation processes. Labour market 15. Unemployment is projected to increase over the medium term as a result of financial hardships, however, the single EU labour market will offer employment opportunities for the unemployed labour force. Table 4. Labour market indicators Indicator ESA code Level in 2008 Rate of change, % 2008 2009 2010 2011 2012 1. Employment, persons (thou) 1520 -0.9 -6.9 -5.1 -0.6 -0.1 2. Employment, hours worked 2900894 1.1 3. Unemployment rate (%)* 5.8 5.8 13.6 16.7 15.5 14.7 4. Productivity (real GDP per employed person), thou LTL 65.5 0.5 -8.7 7 3.9 1.3 5. Labour productivity (real GDP per hour worked), LTL 34.3 -1.1 6. Compensation of employees, m LTL D.1 49047.6 3.9 -18 -8.5 -1.5 0.8 7. Compensation per employee, LTL 32236 5.6 -11.9 -3.6 -0.9 0.9 Sources: Statistics Lithuania, Ministry of Finance *Value of indicator is shown. The 2009 unemployment projections are based on an assumption that labour force supply will increase as a result of the country’s financial situation and an increase in bankruptcy of enterprises (particularly, in construction and industrial sectors), while the demand for labour will fall. According to preliminary data, in 2009 the unemployment rate increased to 13.6%. That is twice higher than a year ago. Level of unemployment is highly influenced by migration of population. In 2006 and 2007 the number of individuals declaring about their departure was lower when compared with the situation from 2004 to 2005, however, in the middle of 2008 this number increased rapidly in the context of poorer quality of life due to global price increase. In late 2008 the number of immigrants started to decline. From January to November in 2009 the number of persons declaring departure from the country increased by 29.8 per cent if compared to figures of the same period last year. The same period saw the decline of immigrants by 28.9 per cent. For this reason negative migration saldo doubled. There is certain risk that in 2010 trends concerning the increasing number of departing people and declining number of arriving people will become more aggravating, especially if economy of EU countries that attract many immigrants will recover first comparing to Lithuania and their labour markets will become stable again. Balance of payments 16. In the first half of 2009 current account was nearly balanced; its surplus made up 0.2 percent of GDP. According to preliminary data on the third quarter of 2009, the current account surplus increased to 3.9 per cent of GDP. The balance is expected to be positive during the quarters to come. Positive changes of current account deficit appeared due to a sudden decline in foreign trade deficit related to import decline that was triggered by lower level of domestic demand. In the first quarter of 2009 trade deficit made up 1.4 per cent of GDP; it remained the same in the third quarter of 2009. Country’s nominal export started to decline in late 2008; during the first three quarters of 2009 it was lower by 32 per cent points if compared with the last year. Recent data shows slower annual export decline as from August. In 2009 the sharpest decline was characteristic to vehicle, machinery and equipment export which depends on reduced investments in foreign markets. Declining export was influenced by rapid decline of exported chemical substances and plastics due to lower production prices. These products made considerable influence to declining export of goods of Lithuanian origin. Following the economic difficulties in the Commonwealth of Independent States Lithuania’s export to these states declined from 25.8 per cent in 2008 to 22.7 per cent in 2009 from January to September; such a situation determined increasing export to the EU Member States. Weakened domestic demand and falling prices resulted in significant import decline. During the first three quarter of 2009 import declined by 42.3 per cent if compared to the corresponding period in 2008. Later import that rapidly declined in early 2009 stabilized and became stable from January if no account of seasonal influence is taken. Despite trade deficit the current account balance was in fact positive due to increased number of current transfers. Such a situation is a result of a more rapid use of support from the EU Structural funds. Preliminary data indicate that at the end of the third quarter of 2009 current account experienced a considerable positive influence of income surplus when foreign enterprises in Lithuania suffered losses. Moreover, from January to September of 2009 the balance of current account experienced positive influence of service balance surplus that resulted from activities in the transport sector that remained competitive during the economic slowdown. The surplus of balance of transport services exceeded by 1.4 times the total surplus of service balance. The balance of capital and financial accounts experienced positive influence of bigger capital account that includes bigger transfers from EU support funds to investment projects. In the first half of 2009 the balance of direct foreign investments was also positive; it made up 1.7 per cent of GDP. These figures were significantly influenced by the sale of the remaining 9.98 per cent of shares of stock company ‘Mažeikių nafta‘ (as from 1 September of 2009 – stock company ‘Orlen Lietuva‘) owned by the State to Polish company PKN Orlen S.A. However, preliminary data of the third quarter of 2009 indicate that the balance of direct investments became negative mostly due to negative re-investments that indicate losses of foreign banks active in Lithuania. In the first half of 2009 the flow of investment portfolio was positive, however, considerable weak (0.7 per cent of GDP) because slightly higher commitments concerning Eurobond emissions by the Government of the Republic of Lithuania in the second quarter of 2009 were partly compensated by increased investments of banks active in Lithuania, investment and pension funds into foreign bonds. During the period in question the balance of financial account experienced negative influence of other investments that had fallen down because banks and enterprises were faster in returning loans to foreign creditors. Similar trends prevailed during the third quarter. Table 5. Sectoral balances Indicator ESA code % of GDP 2008 2009 2010 2011 2012 1. Net borrowing B.9N -10.2 3.7 7.5 5.3 4.3 of which: balance of goods and services -10.9 -1.1 3.3 1.1 0.1 balance of income and transfers* -1 1.4 0.9 1 1 capital account* 1.7 3.4 3.3 3.2 3.2 2. Net surplus (+)/deficit (-) of the private sector -7 12.8 15.6 11.1 7.4 3. Net surplus (+)/deficit (-) of general government B.9N -3.2 -9.1 -8.1 -5.8 -3 4. Statistical discrepancy 0 0 0 0 0 Sources: Ministry of Finance, Bank of Lithuania* Risk-related aspects of economic development 17. Rapid change of events that is characteristic to crisis explains why any central economy development scenario is likely to happen. The state of economy must be diagnosed and policy must be formed on the basis of risk factors. The central economy development scenario of this programme depends on five key assumptions: 1) increase in export volume in 2010 up to almost 85 per cent of the level before the crisis; 2) frontloading of the use of EU support in 2010 according to the plan; 3) sustainable decline of long-term interest rates for loans in national currency to meet the level acceptable for investors investing into production capacity and for consumers (this assumption is equivalent to continuous accumulation of country’s resources aimed at stabilizing debt of the general government sector); 4) timely implemented measures neutralizing risk of structural CAD; 5) increasing employment and stabilization of income from labour before the appearance of secondary effects of decline when consumption and employment start to weaken due to previous slow consumption, low employment and lack of household assets that could be used to finance the consumption. The assumption that export volume in 2010 will increase up to almost 85 per cent of the level before the crisis explains the GDP increase by 4.5 per cent in 2010 and the key factor that compensates the residual influence of domestic market decline in 2009 on the year 2010. Assumptions concerning export may not become true if the recovery of EU economy which is the key export market for Lithuania will prove to lack sustainability or more competitive countries will occupy these markets. Assumption that in 2010 the plan on earlier use of EU support will be implemented explains the increase of GDP by 2 per cent. This assumption is expected to come true due to the implementation of the national economy recovery plan and signature of contracts with project executors. Assumptions concerning low interests, stabilization of consumers’ ability to pay and sustainable consumption expenditures in the domestic market explain the overall GDP increase during 2011–2012. Lack of further consolidation and compliance with EU Council recommendations when interest rates temporarily decline in 2010, may trigger consumption of foreign goods and services that were preferred before the crisis and that was temporarily reduced by the opportunity to earn extra interest rates on deposits in national currency. Resumed consumption of imported goods and services financed from deposits of better well-off residents may cause high CAD. Higher external disbalance could result in higher interest rates, declining investments and consumption. Thus, if additional measures aimed at stabilizing debt of the general government sector will not be prepared in 2010, the assumption concerning low long-term interest rates will not come true and economy decline will start again. In case additional measures for accumulating country’s financial resources become an excessive restriction on the market of goods of Lithuanian origin, economy decline or slower growth would become the central economy development scenario. The above mentioned risks should be managed by implementing structural reforms foreseen in the Programme of the Government of the Republic of Lithuania giving priority to measures that allow effective reduction of dependency of Lithuania’s economy on imported goods. Taxation measures that promote air pollution reduction and energetic dependency on mineral fuel may allow to manage the risk of structural external disbalance. There is positive risk as well, that allows to expect that the pace of economy development will be more rapid than foreseen in the central economy development scenario if confidence in EU business activities will increase more rapid than suggested in the autumn economy development scenario of the European Commission. Structural changes increase the risk that indicators of labour market will be revised. During the second and third quarters of 2009 the number of employed stabilized, however, the average number of employees in full-time units sharply declined; this indicates the risk to return to the rapid unemployment increase scenario. In second quarter of 2009 the number of employed people declined only by 0.8 per cent when compared with figures of the first quarter; the average number of employees in full-time units declined by 3.6 per cent when compared with the third quarter of 2009, when the figures were 0.1 per cent and 3.6 per cent respectively. III. PUBLIC FINANCES Strategy of financial policy 18. When in 2012 the general government sector deficit is reduced below 3 per cent of GDP, government sector finances will be further consolidated aiming at stricter middle-term objective. The middle-term objective is made stricter and aims at ensuring that structural surplus will equal to 0.5 per cent of GDP. The goal of such plans is to strengthen confidence in currency board mechanism and price stability as well as to ensure that during the following decades the general government sector debt will be below 60 per cent of GDP and will not become a burden on the future tax payers and social commitments to the future pensioners will be respected in the long-term. The 2010 objective of the Government of the Republic of Lithuania is to keep the general government sector deficit at the level below of the level in year 2009. In addition, certain preconditions will be ensured that will allow gradual decline of deficit meeting the convergence criteria (3 per cent of GDP) in the years to come. 19. Aiming to further consolidate public finances, the following priorities of the medium-term financial policy (macroeconomic policy) shall be established: 19.1. To align the current fiscal policy with the priorities of social policy. 19.2. To continue to encourage the ongoing implementation of energy reforms. 19.3. To continue to implement the pension reform ensuring the long term sustainability of public finances, to reduce temporarily, only in 2009–2010, the funding for this reform. 19.4. To create favourable conditions for the improvement of labour efficiency, improve competitiveness of the economy, attract more foreign direct investment, and successfully implement EU cohesion policies. 19.5. To aim at mass renovation of apartment blocks by using EU financial support. 19.6. To boost the confidence in the long term sustainability of public sector finances and fiscal discipline norms that ensure long term economic development, reform the systems of education and health. 19.7. To boost the confidence in the long term sustainability of public sector finances and improve the medium term planning of the State budget of the Republic of Lithuania (hereinafter referred to as State budget). 19.8. In implementing the structural reforms envisaged in the Programme of the Government of the Republic of Lithuania, to give priority to the measures aimed at efficient reduction of the dependence of Lithuania’s economy on imported goods without the loss of productivity; to encourage by means of taxation measures the reduction of air pollution and energetic dependency on fossil fuel. 19.9. To establish a results-orientated management model that will ensure efficient use of resources, restructure the system and principles of strategic and state budget planning aiming at higher efficiency and rationality of expenditures by linking to apparent results. 19.10. To improve tax administration and reduce the scope of shadow economy. 20. Seeking to maintain confidence in the principles of the currency board arrangement, Lithuania will, in the area of fiscal policy, further create favourable conditions for improving labour efficiency, improve tax administration, encourage investment, create a favourable business environment and ensure effective use of public funds allocated for investment. Any additional general government revenue or unspent planned expenditure will be used for the achievement of objectives concerning balance indicators in the general government sector and for measures aimed at ensuring long-term sustainability of general government sector finances. Measures planned for 2010–2012 aimed at the achievement of objectives concerning balance indicators in the general government sector 21. Additional consolidation sources necessary for the implementation of the task concerning balance indicator in the general government sector in the year 2010 stem from slower decline in salaries and employment as well as lower deflation perspectives when compared to the previous central economy development scenario which was the basis of budgets for the year 2010. According to the updated central economy development scenario, there is a possibility that in 2010 the general government sector will receive additional income amounting up 1.4 per cent of GDP which will be sufficient for the implementation of the target balance indicator in the general government sector. According to the updated central economy development scenario, the implementation of task concerning balance indicator in the general government sector during 2011–2012 will require additional consolidation measures amounting up to 4.5 per cent of GDP (from which 0.6 per cent of GDP will be required in order to cover higher expenditures on debt management in comparison with expenditures on debt management in 2010). 22. The following measures are foreseen with a view to fulfilling the objectives of general government balance indicator for 2011–2012: 22.1. to make efforts to ensure maximum efficiency of general government expenditure; to carry out government reform, eliminate unfilled vacancies; 22.2. to develop cost-benefit analysis methodology, to apply it in respect of all major projects that are being implemented with taxpayers’ funds, to direct the saved funds to the fulfilment of the objectives of general government balance indicator; 22.3. to perform a thorough analysis of the services provided by the state and local governments and discuss the possibilities for the long-term financing of their provision, in the absence of the possibilities for adequate long-term financing of such services, to privatize the provision of services; 22.4. to set targets for state institutions to increase efficiency at least by 2% per year (i.e. to begin the budgetary planning of each year by reducing by a certain amount the allocations for institutional expenditure and wages); 22.5. to make amendments to the laws on tax so as to achieve, in 2011, the effect of additional revenues which would allow in addition to the completion of the necessary structural reforms and streamlining of expenditure to use them as an additional source for fulfilling the objectives of general government balance indicator; 22.6. to direct the revenues obtained in excess of the amount planned in the central economic development scenario, as a result of more favourable economic development assumptions, to achieving a more rapid consolidation; 22.7. to improve tax administration and reduce the scope of shadow economy; 22.8. to continue to implement pension reform ensuring long-term sustainability of general government finances – to raise the retirement age and otherwise reduce the liabilities of general government sector towards the future retired employees; 22.9. to develop, within 2010, the Guidelines for the Introduction of Real Property Tax, providing for the expansion of tax base; 22.10. to increase the excise tax on diesel fuel (to achieve the minimum rates provided for in the EU acquis). Implementation measures of the recommendations on excessive deficit procedure 23. A sudden economic slowdown in the second half of 2008 had a negative impact on budget implementation plans. In 2008, general government deficit reached 3.2% of GDP and exceeded the reference value set in the Stability and Growth Pact. On 7 July 2009, Lithuania was brought under excessive budget deficit procedure. With a view to bringing general government deficit below 3% of GDP, EU Council recommendation urges Lithuania to adopt average annual fiscal policy measures worth of at least 1.5% of GDP in the period 2009–2011. However, due to a deeper than expected in the spring 2009 deterioration of the general economic situation (particularly, in labour market and consumption), the European Commission made a proposal to EU Council to extend the deadline by one year to 2012 when Lithuania should correct excessive deficit situation. In accordance with the new European Council recommendation of 16 February 2010 on the correction of excessive deficit situation of general government sector, Lithuania’s average annual fiscal effort should account for 2.25% of GDP in 2010–2012. The consolidation measures adopted during 2009 and foreseen for 2010 account for around 12% of GDP. With a view to implementing the revised recommendations to ensure an annual average fiscal effort of at least 2.25% of GDP over 2009-2011, Lithuania will take additional consolidation measures. The Law of the Financial Indicators of the State Budget and Municipal Budgets for 2009 has been amended twice. The net impact of these amendments was around 4% of GDP: the effect of consolidation measures taken in May was LTL 3.1 billion (3.4% of GDP), mainly due to cuts in investment projects, institutional expenditure and wages, and the July budgetary efforts yielded LTL 0.32 billion (0.4% of GDP), the latter fiscal measure being related to the reduction of salaries of state politicians, judges, public officials, civil and statutory servants, employees of budgetary institutions and the increase of standard VAT rate by 2 percentage points. The major impact from these consolidation efforts will be felt in 2010, representing around 1.4% of GDP. The standard VAT rate has been raised by 2 percentage points from 1 September 2009, which, according to preliminary estimates, brought additional revenue of LTL 170 million to the 2009 national budget, and LTL 610 million in revenue is projected for 2010. From 1 August 2009, the base level of the official salary (wage) of state politicians, judges, public officials and civil servants has been cut by 5%; on the basis of differentiation, the basic salary coefficients of civil servants have been reduced. From 1 September 2009, the salary appropriations of budgetary institutions and organizations have been reduced by 8% and there has been a reduction in the basic salary. The impact of wage cuts on the 2009 national budget was LTL 192 million, and impact on the 2010 budget is estimated at LTL 520 million. On 9 December 2009, the Seimas of the Republic of Lithuania adopted the Law of the Republic of Lithuania of the 2010 Indicators of the Budget of the State Social Insurance Fund (Valstybės žinios (Official Gazette) No 151-6783, 2009) and on 10 December 2010 – the Law of the Republic of Lithuania of the 2010 Budget Indicators of the State Budget and Municipal Budgets (Valstybės žinios (Official Gazette) No 152-6822, 2009) which provide for rigorous expenditure limitations in all budget areas, since, on account of general economic conditions, revenues have fallen and efforts are being made to maintain the stability of public finances. The impact of all budget consolidation measures on the 2010 national budget translates into a reduction of State budget deficit by more than LTL 2 billion (down to LTL 4930 million or 5.3% of GDP). In 2010, as a result of expenditure-reducing measures, the appropriations for State budget appropriation managers and programme implementation were cut by approximately 33%, including 10% reductions of salary appropriations for public servants, politicians, public officials, and municipal servants, 5% reductions of salary appropriations for teachers, employees in the social sector and culture and military servants, and 2% cuts in salary appropriations for statutory officials. Moreover, as of 2010, the number of budget appropriation managers has been reduced by 30 as compared to 2009. All the measures have reduced the planned national budget expenditure by LTL 1581 million against the 2009 national budget. The Law of the Republic of Lithuania of Indicators for 2010 of the Budget of the State Social Insurance Fund provides for the reduction of progressive expenditure, such as pensions and other payments and a more precise distribution of social security benefits on the basis of stricter eligibility criteria, which is expected to help protect most socially vulnerable groups in society. The implementation of the reform, coupled with the reduction of other expenditure (non wages-related) in social sector will generate around 3.1% of GDP in savings in 2010. The Government of the Republic of Lithuania also plans to improve budget position by adopting more efficient revenue collection measures. There is a common agreement that the newly proposed medium-term tax changes should contribute to achieving two goals – provide revenues in the medium-term and economic growth. Taking into consideration the indicators of the State budget and other related budgets and funds (the envisaged deficit of the State Social Insurance Fund Budget, transfers from the Reserve (Stabilization) Fund for the financing of pension system reform and the Fund for the Decommissioning of the Ignalina NPP), the general government deficit in 2010 may account for 8.1% of the GDP figure foreseen in the central economic development scenario. That implies that, in order to correct the current excessive deficit situation, additional consolidation measures worth 4.5% of GDP would be required no later than 2012. The Resolution No XI-536 of 8 December 2009 of the Seimas of the Republic of Lithuania (Valstybės žinios (Official Gazette) No 147-6562, 2009) on “The Planned National Budget Indicators for the years 2010, 2011 and 2012“ foresees a gradual contraction of the national budget deficit over the years down to, respectively, 5.3%, 3.2% and 0.6% of GDP. Taking into account the social fund budgets for 2010 and other legislative acts related to the Law of the Republic of Lithuania of the Financial Indicators of the State Budget and Municipal Budgets for 2010, general government deficit is projected to be reduced below 3% of GDP threshold in 2012. The assessment of the temporary budget consolidation and economic recovery measures is provided in table 6. Table 6. Temporary measures of general government sector fiscal consolidation and economic recovery Measure and legislative acts providing for its temporariness % of GDP 2008 2009 2010 2011 2012 Reduction of taxable profit up to 50% as a result of investment in technological modernisation. Law of the Republic of Lithuania on Amending and Supplementing Articles 2, 5, 12, 34, 382, 41 and 58 of the Law on Corporate Income Tax and Supplementing the Law by Article 401 and Chapter IX1 (Valstybes žinios (Official Gazette) No 149-6000, 2008) -0.27 -0.26 -0.25 Reduction of the excise tax rate on diesel fuel. Law on Amending Article 35 of the Law of the Republic of Lithuania on Excise Duties (Valstybes žinios (Official Gazette) No 91-3926, 2009) Corrigendum to Council Directive 2004/74/EC of 29 April 2004 amending Directive 2003/96/EC as regards the possibility for certain Member States to apply, in respect of energy products and electricity, temporary exemptions or reductions in the levels of taxation (OJ L 157, 30.4.2004) -0.06 -0.17 Return of VAT overpayments 0.46 -0.38 Reduction of payments to pension funds. Law on Amending Article 4 of the Law of the Republic of Lithuania on Reform of the Pension System (Valstybes žinios (Official Gazette) No 54-2136, 2009) 0.6 0.75 Total 0.46 0.15 0.31 -0.26 -0.25 Budget impact on the medium-term objectives of general government balance indicator 24. Expectations regarding prudent fiscal policy are the basis of the confidence of local and foreign investors. 25. The structure of general government finances in 2009–2012 as compared to 2008, has changed mainly due to payment of social benefits, interest payments and the use of EU financial support. While there has been a decrease in all expenditure expressed in the national currency, there has been an increase in social benefits, interest payments and the use of EU financial support. 26. General government financial projections in this Programme change mainly due to general economic decline, cutting of expenditure and tax measures aimed at implementing the recommendations on excessive general government deficit. Table 7. General government indicators (S13) for the years 2008–2012* ESA code Level in 2008 (LTL mill.) % of GDP 2008 2009 2010 2011 2012 1. General government S.13 -3597.9 -3.2 -9.1 -8.1 -5.8 -3 2. Central government budget S.1311 -2240.2 -2 -6.1 -4.9 -3.3 -0.9 3. State budget S.1312 N.A. N.A. N.A. N.A. N.A. N.A. 4. Municipal budgets S.1313 -248.8 -0.2 -0.2 -0.3 -0.3 -0.3 5. Social insurance funds S.1314 -1108.9 -1 -2.8 -2.9 -2.2 -1.9 General government (S13) 6. Total revenue TR 37992.2 34.2 34.3 36.2 35.6 35.7 7. Total expenditure TE 41590.1 37.4 43.4 44.3 41.4 38.7 8. Net lending/borrowing EDP B.9 -3597.9 -3.2 -9.1 -8.1 -5.8 -3 9. Interest expenditure EDP D.41 720.7 0.6 1.3 1.9 2.2 2.4 10. Primary balance -2877.2 -2.6 -7.8 -6.2 -3.6 -0.6 11. One-off and other temporary measures 0.5 0.2 0.3 -0.3 -0.3 Revenues 12. Tax revenues (12=12a+12b+12c) 23185.4 20.9 17.3 15.7 15.9 17.1 12a. Revenues from indirect taxes D.2 12763.6 11.5 10.7 10.9 11.2 12.1 12b. Revenues from direct taxes D.5 10415.7 9.4 6.6 4.8 4.6 5 12c. Property tax D.91 6.1 0 0 0 0 0 13. Social insurance contributions D.61 10404 9.4 10.4 10.4 9.3 10.2 14. Property income D.4 651.1 0.6 0.6 0.6 0.6 0.6 15. Other 3751.8 3.4 6 9.5 9.8 7.8 16=6. Total revenue TR 37992.2 34.2 34.3 36.2 35.6 35.7 p.m.: Tax burden (D.2+D.5+D.61+D.91-D.995) 33589.4 30.2 27.7 26.2 25.2 27.3 Expenditure 17. Compensations to employees + Intermediate consumption D.1+P.2 18356.2 16.5 17.1 15.4 12.3 12 17a. Compensations to employees D.1 11991.5 10.8 12.5 11.1 8.1 7.9 17b. Intermediate consumption P.2 6364.7 5.7 4.6 4.4 4.3 4.1 18. Social payments (18=18a+18b) 14216.4 12.8 15.9 14.5 13.6 13.5 18a. Social transfers in kind D.6311, D.63121, D.63131 1949.1 1.8 2 2.2 2 2 18b. Social transfers other than in kind D.62 12267.2 11 13.8 12.4 11.6 11.5 19=9. Interest payment EDP D.41 720.7 0.6 1.3 1.9 2.2 2.4 20. Subsidies D.3 774.6 0.7 0.7 0.6 0.6 0.6 21. Gross fixed capital formation P.51 5513.5 5 5.6 8 8.4 6.6 22. Other 2008.8 1.8 2.8 3.7 4.1 3.6 23=7. Total expenditure TE 41590.1 37.4 43.4 44.3 41.4 38.7 p.m.: Government consumption (nominal) P.3 21469 19.3 20.1 18.5 15.2 14.8 Sources: Statistics Lithuania, Ministry of Finance *Due to rounding, the sum of revenue and expenditure components may be different from the amounts given under “total revenue” and “total expenditure”. In the medium term, the general government revenue (as a percentage of GDP) will grow. In 2008, the general government revenue was 34.2% of GDP, in 2009 – 34.3% of GDP, and, in 2012, it is set to increase to 35.7% of GDP due to an increasing EU structural funds support. Although the abolition of VAT reduced r …