The IMF is apparently concerned that the government is hiding a large budget  deficit
Ukraine’s deputy prime minister, Sergiy Tigipko, has confirmed  what many had guessed: Despite the self-congratulatory fanfare with which the  government announced its budget for 2010, the International Monetary Fund – a  critical lender to the nation -- seems unimpressed. Apparently, the IMF suspects  a hidden budget deficit larger than declared, which may imperil lending frozen  last year over similar concerns.
The government is hoping to secure a $19  billion lending program from the IMF, but the international lender seems to be  playing hardball as the country’s economy starts to strengthen, and may demand  further cuts and market-oriented reforms from the recalcitrant Ukrainian  side.
The government engineered the budget to comply with the IMF’s  demand for a maximum deficit of 6 percent of gross domestic product. But the  government did so by avoiding any social spending cuts that could undermine the  government’s populist rhetoric.
The official budget deficit in the budget  law passed by parliament April 27 is 5.3 percent of GDP. But skeptics argued  that the government’s revenue forecasts were massively over-optimistic and  spending forecasts understated.
Now Tigipko confirmed that the IMF is among the ranks of the skeptics. “The main  problem between us and the IMF is that we must confirm a projected deficit of  5.3 percent,” he said on May 21. “What is projected by the Ukrainian government  is a rather ambitious program, and the international organizations don’t really  believe it. They have doubts, first of all, about our arguments,” he  confessed.
Serhiy Lyovochkin, President Viktor Yanukovych’s chief of  staff, said on May 26 that the main bones of contention are the government’s  plan to issue bonds to compensate business owners who have not received  value-added tax refunds, which the IMF sees as indirect budget deficit, and the  refusal to raise gas tariffs for households.
The IMF announced that it  has yet to fix a date for starting its mission in Kyiv, which observers take as  confirmation that it does not agree with the declared budget  parameters.
Former Finance Minister Viktor Pynzenyk, who resigned in 2009  over then Prime Minister Yulia Tymoshenko’s wildly unrealistic budget, wrote in  the Dzerkalo Tyzhnia weekly that the real budget deficit for 2010 could reach a  staggering 16 percent, which includes the costs of bank recapitalization that  the government kept separate from the budget law passed by the Verkhovna Rada on  April 27.
Analysts see the real consolidated budget deficit, including bank  recapitalization to shore up Ukraine’s shaky financial system, at closer to 10  percent.
According to Oleh Ustenko, chief economist at the Bleyzer  Foundation: “Ukraine’s total hidden budget deficit is at a very minimum 10  percent of GDP.
This includes 5.3 percent primary revenue deficit, 3  percent for [gas distribution monopoly] Naftogaz, if there is no increase in  utility tariffs, 1.5 per cent for the Pension Fund deficit, and 2.8 per cent for  bank recapitalization.”
“The budget has obviously been designed to meet  IMF requirements on paper,” said Vitaliy Vavryshchuk, an analyst at brokerage BG  Capital. “Our calculations put the real budget deficit at 7 percent, and 9-9.5  percent, including the costs of bank recapitalization.”
Olena Bilan from  brokerage Dragon Capital similarly forecasted a deficit of 7.5 percent of GDP,  with an additional 1.4 percent needed for bank recapitalization, making an  overall 8.9 percent.
On the revenue side, analysts are skeptical about  the government’s targets. “The budget is based heavily on a surge in revenues  (19 percent on the year) on the back of higher tax collections (36 percent on  the year) in order to finance inflated social expenditures and rising public  sector wages,” said Vavryshchuk, who forecasted instead 22-25 percent tax  growth.
According to Pynzenyk, for the first four months of 2010, tax  revenue growth on the year only reached 10 percent instead of the forecast 40  percent, taking into account the practice in 2009 of not refunding VAT. For the  government forecasts for VAT revenue to come true, imports would have to  increase by 40 per cent, according to Ustenko, instead of the 25 percent that is  likely, leaving 11 percent of the predicted VAT revenues unaccounted  for.
According to Ustenko, to rectify the situation, the IMF will demand  that Ukraine hike utility tariffs to mitigate the Naftogaz deficit, and reform  the pension system, by raising the average pension age, in particular by  abolishing privileges such as early pensions for particular groups.
The  government is likely to resist such demands that would be deeply unpopular in  the short term, although crucial over the long term.
With export-led  economic growth surging in the first quarter to 5 percent on the year, and  reaching 8 percent on the year in April, Ukraine’s government has a stronger  footing in talks with the IMF when it comes to budget revenue forecasts. The  budget is based on a modest growth forecast of 3.7 per cent. “They [the IMF]  most of all question planned budget revenues. But the dynamics in April and May  show that the figures will be achieved,” Tigipko claimed
The government has penciled in roughly $2 billion of IMF money to fund the  deficit. An IMF deal would serve as a clean bill of health for markets and also  for other international financial institutions, making other borrowing such as a  planned $1.3 billion Eurobond cheaper. According to Vavryshchuk, the government  could get by over the short term without the IMF money by expensive borrowing on  the market and by monetizing the deficit – effectively printing money.
At  the same time, with Ukraine having stabilized and even strengthening, it is now  easier for the IMF to walk away without a deal, instead of jeopardizing its  principles internationally, said Vavryshchuk. This means a deal with the IMF may  not be signed until later in the year.
The IMF surprised many in 2009  with its lenient attitude towards embattled countries like Ukraine. Many  countries, especially in Eastern Europe, received IMF funding while running  large budget deficits and increasing social expenditure as stimulus spending in  the face of economic meltdown.
But those days seem to have past. With a  nervous eye on the spreading Greek debt crisis, the IMF is reverting to its  deficit-cutting form of the 1990s. A policy review released May 14 called for  governments to exit stimulus spending and launch fiscal consolidation. “It is  now urgent to start putting in place measures to ensure that the increase in  deficits and debts resulting from the crisis … does not lead to fiscal  sustainability problems,” wrote IMF head Dominique Strauss-Kahn in the  introduction to the report. “In many countries, fiscal adjustment will require a  sizable, and sometimes unprecedented, effort,” he said.
True to its word,  the IMF has already downsized neighboring Romania’s 2010 budget in April,  leading to 15 percent cuts in pensions and 25 percent in public sector salaries.  Romania, like Ukraine, has a comparatively low level of national debt, but was  running a high structural budget deficit as a result of the crisis.
The  IMF in autumn 2008 agreed to disburse about $17 billion. Ukraine received three  tranches worth almost $11 billion. The allocation of the fourth tranche, worth  $3.8 billion, was scheduled for November 2009, but was stalled after social  spending hikes were passed into law.
Ukraine’s government already took  drastic steps to cut the budget deficit when it negotiated a 30 percent  reduction in the price paid by Ukraine for imported Russian gas, in exchange for  a 25-year extension of the lease for the Russian Black Sea fleet naval base in  Sevastopol, due to expire in 2017. The controversial agreement was signed in  Kharkiv by President Viktor Yanukovych and Russian President Dmitry Medvedev  April 21, and ratified on the same day as the budget was passed, on April  27.