MEDIA BRIEFING

AN ANALYSIS OF THE
NATIONAL BUDGET FOR FY2015

06 JUNE 2014

CPD IRBD 2014 TEAM

Dr Debapriya Bhattacharya, Distinguished Fellow CPD and, Professor Mustafizur Rahman,
Executive Director, CPD were in overall charge of preparing this report as the Team Leaders.
Lead contributions were provided by Dr Fahmida Khatun, Research Director; Dr Khondaker
Golam Moazzem, Additional Research Director and Mr Towfiqul Islam Khan, Research Fellow,
CPD.
Valuable research support was received from Mr M Shafiqul Islam, Additional Director,
Administration & Finance; Ms Khaleda Akhter, Senior Research Associate; Mr Muhammad Al
Amin, Senior Research Associate; Mr Kishore Kumer Basak, Senior Research Associate; Mr Md.
Zafar Sadique, Senior Research Associate; Ms Mehruna Islam Chowdhury, Senior Research
Associate; Mr Uttam Kumar Paul, Deputy Director, Accounts; Mr Mashfique Ibne Akbar, Research
Associate; Ms Farzana Sehrin, Research Associate; Ms Saifa Raz, Research Associate; Ms Umme
Salma, Research Associate; Ms Umme Shefa Rezbana, Research Associate; Ms Mahenaw Ummul
Wara, Research Associate; Mr Muhammad Nabil, Dialogue Associate; Mr Md. Naimul Gani Saif,
Research Associate; Mr Mohammad Afshar Ali, Research Associate; Ms Shahida Pervin, Research
Associate; Ms Afnan Ashfaque, Research Associate; Mr Mostafa Amir Sabbih, Research Associate;
Ms Kashfi Rayan, Research Associate; Ms Shahzeen Hafiz, Programme Associate; Mr Ziad Quader,
Research Intern; Ms Nadee Naboneeta Imran, Research Intern and Mr Ali Ishraq Khabir, Research
Intern, CPD.

Mr Towfiqul Islam Khan was the Coordinator of the CPD IRBD 2014 Team.
CPD (2014): An Analysis of the National Budget for FY2015

ACKNOWLEDGEMENT
The CPD IRBD 2014 Team would like to register its sincere gratitude to Professor
Rehman Sobhan, Chairman, CPD for his advice and guidance
The Team gratefully acknowledges the valuable support provided by Ms Anisatul Fatema
Yousuf, Director, Dialogue and Communication Division, CPD and her colleagues at the
Division in preparing this report. Contribution of the CPD Administration and Finance
Division is also highly appreciated. Assistance of Mr A H M Ashrafuzzaman, Deputy
Director (System Analyst) and Mr Hamidul Hoque Mondal, Senior Administrative Associate
is particularly appreciated
Concerned officials belonging to a number of institutions have extended valuable support
to the CPD IRBD 2014 Team members for which the Team would like to register its
sincere thanks
The CPD IRBD 2014 Team alone remains responsible for the analyses, interpretations and
conclusions presented in this report

CPD (2014): An Analysis of the National Budget for FY2015

CONTENTS
I.
II.
III.
IV.
V.

VI.

VII.
VIII.
IX.

INTRODUCTION
MEDIUM TERM OUTLOOK
PUBLIC FINANCE FRAMEWORK
FISCAL MEASURES
SECTORAL MEASURES
a. AGRICULTURE
b. INDUSTRY
c. CAPITAL MARKET
d. ENERGY AND POWER
e. ENVIRONMENT
f.
DEFENSE
SOCIAL SECTOR
a. EDUCATION
b. HEALTH
c. GENDER
d. CHILD
e. SOCIAL SAFETY NET PROGRAMMES
LOCAL GOVERNMENT AND DISTRICT BUDGET
ECONOMIC REFORMS
CONCLUDING REMARKS

CPD (2014): An Analysis of the National Budget for FY2015

CPD (2014): An Analysis of the National Budget for FY2015

1. INTROUCTION
The national budget is an important policy document
Means of addressing the political commitments
Medium for making policy pronouncements
Way to address prevailing and emerging economic challenges
The budget has been prepared in the backdrop of
Enhanced public investment
Stable inflation
Substantial surplus in BoP

Stable exchange rate

Augmented foreign exchange reserve
Stable (falling) global commodity prices
At the same time Slowdown in GDP growth
Declining private investment
Significant shortfall in revenue mobilisation
Reliance on domestic sources for financing fiscal deficit
Depressed domestic demand
CPD (2014): An Analysis of the National Budget for FY2015

1. INTROUCTION
The objectives of the budget for FY15 appear to be:
Attaining fiscal consolidation backed up by high growth of revenue
Revitalising economic growth momentum
Reverting the downturn of private investment
Further control of inflation
It also seems that the Budget for FY15:
Has finally abandoned the Sixth Five Year Plan targets
The Seventh Five Year Plan has not been picked up

Has little reference to new and specific commitments of the recent election

manifesto

CPD (2014): An Analysis of the National Budget for FY2015

1. INTROUCTION
CPDs analyses on the budget have been undertaken in view of
Trends in macroeconomic correlates and outlook including the

consistency between fiscal framework and macro targeting

Soundness of fiscal framework
Sectoral priorities
Sensitivity to social groups (e.g. gender, child, poor)
Regional dimensions (local government)
Emphasises the importance of economic reform agenda
Concludes with a set of summary observations

CPD (2014): An Analysis of the National Budget for FY2015

1. INTROUCTION
Bangladeshs score in Open Budget Index (OBI)

OBI Score in South Asia (2012)

Source: Open Budget Index

Bangladesh has improved its performance in OBI over the years

However, within South Asia Bangladeshs performance is average

CPD (2014): An Analysis of the National Budget for FY2015

CPD (2014): An Analysis of the National Budget for FY2015

10

1I. MEDIUM TERM OUTLOOK

GDP Growth (%), base year:2005-06

Private Investment as % of GDP, base year:2005-06

The new estimates of GDP (base year 2005-06) is not used by the Finance Minister although the
Economic Review (published by the Finance Ministry) used the new estimates
The same document also provides the medium term macroeconomic framework based on 1995-96
base year
Will the GDP growth target be compared with the new or old base year?
If GDP growth in FY15 has to be 7.3%, private investment (as % of GDP) has to grow from 21% to
25% (4-5% percentage points or around Tk. 75,000 crore additional amount of private investment
or USD 9.5 billion) in a single year an impossible target.
Considering continuing improvement in public investment and trend capital productivity
Indeed dual approach is creating confusion!

CPD (2014): An Analysis of the National Budget for FY2015

11

1I. MEDIUM TERM OUTLOOK

GDP Growth (%), base year:1995-96

Private Investment as % of GDP, base year:1995-96

GDP growth for FY15 is possibly a desirable target, which regrettably does not have any

substantive basis
The Finance Minister is expecting favorable weather and political stability!
Public investment (as % of GDP) is expected a rise by 1.2 percentage points in FY15
However, the projection shows that in FY15 private investment as a share of GDP

will continue to decline (for third consecutive year), but will ensure higher growth of
GDP!
CPD (2014): An Analysis of the National Budget for FY2015

12

1I. MEDIUM TERM OUTLOOK

Local Investment Registration (Crore Tk.)

Growth of Private Sector Credit (%)

CPD (2014): An Analysis of the National Budget for FY2015

Joint Venture Investment Registration (Crore Tk.)

Import of Capital Machineries (million $)

13

1I. MEDIUM TERM OUTLOOK

Private sector credit growth for FY14 is reported to be 16.5% (11.5% as of March

2014)
Inflation rate to come down to FY14 at 7.0% (7.5% in April 2014)
Target for FY15 is set at 6.0%
Export is expected to increase by 15% in FY15
Import on the other hand is anticipated to grow by 15% in FY15
10% growth of remittances inflow is envisaged for FY15 ((-) 3.6% growth during JulMay FY14)
Foreign exchange reserve at the end of FY14 will be $16.9 bln (20.4 bln on 3 June14)
2.6 months of imports!
Should be 5 months of imports - is it a computational error?!

CPD (2014): An Analysis of the National Budget for FY2015

14

1I. MEDIUM TERM OUTLOOK

It can also be seen that the medium term outlook proposed by the government has

predicated a very optimistic scenario - e.g. 8% GDP growth in FY17

GDP growth will accelerate, while inflation will systematically slide
Similarly, the budget deficit will reduce (as % of GDP), while the financing will be

more from foreign sources

Basis of such optimistic medium term outlook is quite obscure.
Poor projection of macroeconomic correlates
Weak quality of fiscal planning
Little consistency between fiscal framework and macro targeting

CPD (2014): An Analysis of the National Budget for FY2015

15

CPD (2014): An Analysis of the National Budget for FY2015

16

III. PUBLIC FINANCE FRAMEWORK

Revenue (16.8%) projected to grow faster than public expenditure (15.9%)-

Total budget expenditure is set at 18.7% of GDP

Revenue income will be 13.7% of GDP

Development expenditure (32.5%) programmed to grow faster than nondevelopment revenue expenditure (14.3%)

ADP: 32.1% of total public expenditure (27.7% in the RBFY14)

Budget deficit has been projected at 5.0% of GDP (same in RBFY14)
Balance in financing budget deficit will be restored, if implemented

High foreign financing target (30.7% growth over the RBFY14) has been
set with anticipated gross foreign aid flow of USD 4.1 billion

Governments net bank borrowing will increase by only 4.1%

The fiscal framework may once again be found to be vulnerable in the
face of reality!

CPD (2014): An Analysis of the National Budget for FY2015

17

III. PUBLIC FINANCE FRAMEWORK

Exploring Credibility of Fiscal Framework
Differences between Actual and Proposed Figures of Fiscal Variables (%)
FY

Revenue

FY2012
FY2013
FY2014
Avg. FY12-FY14

NBR (1)
-0.30
-7.95
-8.15
5.47

FY12
FY13
FY14
Avg FY12-FY14

FY2012
FY2013
FY2014
Avg FY12-FY14

Foreign
Grants
(1)
-27.29
6.33
-10.70
14.77

Non-NBR (2)
-7.20
-9.73
0.96
5.47

Tax Revenue (3=1+2)

Non-Tax Revenue (4)
Total Revenue (5=3+4)
-0.58
-13.95
-3.13
-8.02
-6.48
-7.77
-7.82
0.96
-6.44
5.96
7.13
5.78
Expenditure
ADP (1)
Non-ADP (2)
Total Expenditure (3=1+2)
-18.41
-2.27
-6.81
-10.81
-8.47
-9.14
-8.91
-0.25
-2.82
12.71
3.66
6.26
Deficit Financing
Foreign Amortization
Foreign
BankNon-Bank
Domestic
Total Financing
Loan
(3)
Borrowing Net Borrowing Borrowing (6) Borrowing
(8=1+4+7)
(2)
(4=2+3)
(5)
(7=5+6)
-49.09
4.64
-72.24
43.44
-59.17
12.32
-16.43
-34.84
-10.07
-50.36
16.75
-50.94
4.45
-14.25
-11.28
-9.50
-12.43
15.35
38.00
20.66
8.20
31.74

CPD (2014): An Analysis of the National Budget for FY2015

8.07

45.01

12.48

25.18

49.37

12.96
18

III. PUBLIC FINANCE FRAMEWORK

Applying Chi-square test on fiscal variables of FY2001-FY2014, it is found that all

the actual figures of fiscal variables significantly deviates from proposed figures
In FY2014, actual total financing was 8.2 per cent larger than proposed total

financing. It was due to high actual non-bank borrowing and actual domestic
borrowing in FY2014
The most volatile component of fiscal framework is total financing of which

most volatile is domestic borrowing

The second most volatile component of fiscal framework is total expenditure of

which most volatile is ADP

The third most volatile component of fiscal framework is total revenue of which

most volatile is non-tax revenue

Quality of planning in the area of fiscal framework in Bangladesh

remain wanting
CPD (2014): An Analysis of the National Budget for FY2015

19

III. PUBLIC FINANCE FRAMEWORK

Average (FY2005-06 to FY2012-13) expenditure difference between allocation and expenditure
in real terms (base 2005-06)

Total Development expenditure

Total revenue expenditure

Total expenditure

0.0

5.0

10.0

15.0

20.0

25.0

Deviation of total expenditure from allocation is 11.8 per cent over FY06 to FY13
Deviation of development expenditure from allocated figures stands at 22.6 per cent
This raises questions regarding the planning and implementation of public expenditure
CPD (2014): An Analysis of the National Budget for FY2015

20

III. PUBLIC FINANCE FRAMEWORK

Share of Revenue FY15

Incremental Share of Revenue FY15

Revenue Mobilisation
FY15 budget targets an additional Tk. 26,283 crore
revenue with a 16.8% growth over RBFY14
NBR to take the lead role (accounting for 94.1% of
incremental revenue) with 19.3% growth
44.6% of incremental revenue from income tax; while
34.8% from VAT
Import duty collection growth target is set at 8.6%

CPD (2014): An Analysis of the National Budget for FY2015

21

III. PUBLIC FINANCE FRAMEWORK

Revenue Mobilisation
Non-NBR revenue growth for FY15 remain at a subdued level
In absence of any lump receipts (e.g. telecom license fee) the target looks to be

on the high side

Targets for non-NBR tax and non-tax were raised in RBFY14 over the unattainable

targets for BFY14

Overall revenue collection may fall short of Tk. 12,000-13,000 crore from the target

of RBFY14 (around Tk. 23,000 crore from the budget target)

Under such a scenario required growth rate for revenue in FY15 may shoot up to

around 27%, while for NBR the actual target may stand around 25%
Only in FY08 (27.4% - CTG effect) and FY11 (28.0% - international price effect) a

higher growth was attained two outlier years!

CPD (2014): An Analysis of the National Budget for FY2015

22

III. PUBLIC FINANCE FRAMEWORK

Total Public Expenditure
Share in
BFY15
Sector
Public Service
Education and Technology
Interest
Transport and Communication
Agriculture
LGRD
Defence Services
Social Security and Welfare
Others(Memorandum Item)
Public Order and Safety
Fuel and Energy
Health
Industrial and Economic Services
Housing
Recreation, Culture and Religious Affairs
Total Public Expenditure

CPD (2014): An Analysis of the National Budget for FY2015

%
15.3
13.1
12.4
9.8
7.6
7.1
6.6
6.1
5.3
5.0
4.6
4.4
1.1
0.8
0.8
100.0

Share in
RBFY14
12.4
13.1
12.3
7.2
8.2
7.1
7.0
5.7
8.9
5.6
4.6
4.6
1.7
0.8
0.9
100.0

Change in FY15B over FY14R

Crore Tk
%
11349.0
42.2
4497.0
15.9
4503.0
17.0
8940.0
57.7
1390.0
7.9
2326.0
15.1
1282.0
8.4
2882.0
23.4
-5839.0
-30.4
530.0
4.4
1638.0
16.5
1191.0
12.0
-765.0
-21.0
321.0
18.5
39.0
2.0
34284.0
15.9
23

III. PUBLIC FINANCE FRAMEWORK

Economic Analysis of Non-Development Revenue Expenditure
Indicators
Pay and Allowances
Goods and Services
Interest Payments
Domestic
Foreign
Subsidies and Current Transfers
Block Allocation
Acquisition of Assets and Works
Non-Development Revenue Expenditure

Growth
FY15/RBFY14
4.4
0.3
17.0
17.9
3.1
11.2
312.5
9.0
10.5

Share B
Share RB Incremental Share
Change
FY15
FY14
FY15B
FY15/RBFY14
21.2
22.5
9.4
1202
12.1
13.3
0.4
46
23.0
21.7
35.1
4503
21.7
20.3
34.7
4451
1.3
1.4
0.4
52
37.1
36.9
39.5
5057
1.4
0.4
11.1
1428
5.2
5.3
4.5
579
100.0
100.0
100.0
12815

Allocation for Public Services is set to be 1.4 times of RBFY14 (Tk. 11,349 crore)
Tk. 10,269 crore additional allocation for Finance Division! 90.5% of the incremental allocation
for Public Services
Additional Tk. 6,466 crore allocation for Investments in Shares and Equities 57.0% of the
incremental allocation to Public Services
Tk. 5,000 crore has been for Investment for Recapitalisation
Highest incremental share to Subsidies and Current Transfers, followed by interest payments and
block allocation block allocation is to increase by a substantial margin!
Interest payment remains the sector with third highest allocation
Domestic Interest Payments will increase by 17.9% in FY15 about 34.7% of total incremental
augmented non-development revenue expenditure

CPD (2014): An Analysis of the National Budget for FY2015

24

III. PUBLIC FINANCE FRAMEWORK

Subsidy
No clear mention of the total demand proposed for FY2015
Total subsidy allocation is reduced by (-) 18.2%
Total subsidy in BFY14 is 2.0% of GDP which was 2.7% in RBFY14
Kept within the IMF-ECF indicated limit
BPC subsidy is expected to be (-) 61.9% lower
Higher tariff values are proposed for import of petroleum! Will increase subsidy
demand
Will it require another price adjustment?!
PDB subsidy for power is expected to be14.8% higher
These are reflected in loans and advances ((-) 39.9% reduction)
Allocation for net loans and advances is kept below the IMF-ECF limit
Agriculture subsidy will be Tk. 9,000 crore same as the previous year
For export sector, allocation is increased by 10%

CPD (2014): An Analysis of the National Budget for FY2015

25

III. PUBLIC FINANCE FRAMEWORK

Annual Development Programme (ADP)
ADP of Tk. 80,315 crore (6.0% of GDP) has been proposed for FY15
33.9% higher than RADP for FY14 and 21.9% higher than ADP for FY14
It will be 41% higher if there is a 5% shortfall in RADP for FY14 implementation
Project Aid component will be 34.5% of total ADP (35.3% in RADP of FY13 and
37.3% % in original ADP of FY13)
Tk. 3,060.6 crore has been provided to development assistance programmes
Tk. 3,006 crore has been allocated to unapproved block allocation
Self-financed development budget is reported for the second time
Allocation for autonomous bodies and corporations has been reduced to Tk. 5,686
crore (Tk. 8,114 crore for FY14)
Only 1,744 crore has been implemented upto April 2014

CPD (2014): An Analysis of the National Budget for FY2015

26

III. PUBLIC FINANCE FRAMEWORK

The ADP for FY15 contains 1,034 projects (1046 for ADP of FY14)
Another 684 unapproved projects has also been listed in the ADP FY15

Number of Projects
1037

Number of Projects
1046

Similar trend in the structure of ADP continues

Number of Projects
1034

Only 29 new projects are included: 0.6% of total ADP;

202 new projects were included in the RADP for FY14; 157 new projects were included

in the RADP for FY13

CPD (2014): An Analysis of the National Budget for FY2015

27

III. PUBLIC FINANCE FRAMEWORK

More than half of the allocations (about 51.0%) are provided to 352 projects

which are suppose to continue to the next ADP (for FY16)

However, highest number of projects (357 projects) are to be concluded in

FY15, according to project completion timeline

296 carryover projects consist of 11.4% of the total allocation

Transportation sector has 87 of these projects, while Physical Planning, Water Supply

& Housing Sector also has 53 number of similar projects

Planning Commission identified some 305 of these projects to be completed

in FY14

However, 110 projects (36.1%) have been carried forward to this list from expected

to be completed list for ADP FY14

It has become a tendency in recent years to list a set of unapproved projects,

similar to ADP

Project Status
Unapproved projects without Allocation
Projects listed to seek Foreign Funds
Total Number of Projects in the ADP
CPD (2014): An Analysis of the National Budget for FY2015

FY09
407
160
904

FY10
492
227
886

FY11
800
292
916

FY12
702
259
1039

FY13
720
327
1037

FY14
662
346
1046

FY15
624
338
1034
28

III. PUBLIC FINANCE FRAMEWORK

Top Five Sectors in ADP FY15
Sector
Top Five Sectors
Transport
Education & Religious Affairs
Power
Physical Planning, Water Supply
&Housing
Rural Development & Institutions
Other 12 Sectors
Development Assistance
Total

581
189
112
53

68.7
23.3
13.3
13.7

Share
(%)
RADP
FY14
64.5
17.2
13.3
13.4

131
96
453
NA
1034

8.3
10.1
28.3
2.9
100.0

9.0
11.6
31.9
3.5
100.0

No of
Projects
ADP FY15

Share
(%) ADP
FY14

Share
(%)
ADP
FY15
66.5
23.4
12.2
11.6
10.0
9.3
29.7
3.8
100.0

Growth (%) ADP

FY15
37.9
82.9
22.9
15.0
49.2
6.7
24.5
44.2
33.9

Top 5 sectors have received 66.5% of total allocation

Transport Sector once again received both highest number of projects and

amount of allocation (23.4% of total allocation): 82.9% growth over RADP FY14
Impact of Padma Bridge once again!
CPD (2014): An Analysis of the National Budget for FY2015

29

III. PUBLIC FINANCE FRAMEWORK

Total allocation for PMBP for FY15 is Tk. 8,100 crore i.e. 39.5% of the total cost
Accounts for 29.8% of incremental allocation of ADP FY15 over RADP FY14
Only 10.7% of the project cost has been implemented upto March 2014
The project cost was estimated in 2009 needs revisit!
Foreign exchange reserves will definitely suffer erosion if there is no notable external

financing associated with the project

One of the priority projects Dhaka-Chittagong 4-lane project (revised) is expected
to be completed by December 2014
If RADP FY14 allocation for the aforesaid project is assumed to be fully utilised, share
of implementation over its project cost would be 50.8%
The project received only Tk. 500 crore in ADP for FY15 (which is 15.7% of project
cost) and the project is not included to be completed reported by the Planning
Commission
One can question as regards possibility of completion of the project in due time
adequate allocation has also not been received
Many of the projects to be complemented were carried forward to the next ADP due to
inadequate allocation (i.e.Ashugonj 450MW, Siddhirgonj 335 MW Projects etc.)
CPD (2014): An Analysis of the National Budget for FY2015

30

III. PUBLIC FINANCE FRAMEWORK

It appears that number of new projects in ADP FY15 was limited - however,

the practice of symbolic allocation (the minimum to keep the project in

the ADP list) is still pervasive

13 projects under ADP received only Tk. 1 lakh for FY15

10 of those are investment projects

9 of those are carryover from ADP FY14

7 of the 13 projects are from Transport sector

26 investment' projects under ADP received only Tk. 1 crore or less (besides

those 10 investment projects with 1 lakh allocation) for FY14

16 of the projects are carryover

As a whole these 26 projects received only Tk. 10.2 crore allocation in ADP

FY15 (averaged Tk. 39.3 lakh per project)

Projects from 11 different sectors shared this allocation

CPD (2014): An Analysis of the National Budget for FY2015

31

III. PUBLIC FINANCE FRAMEWORK

The business as usual as regards ADP continues Large number of projects with stagnating capacity

Challenges of concluding and carry-over projects

Preponderance of unfunded projects
No attempt to bring discipline in the ADP
No prioritisation framework
No result-based monitoring

CPD (2014): An Analysis of the National Budget for FY2015

32

III. PUBLIC FINANCE FRAMEWORK

Budget Deficit and Financing
BFY15
Description
Revenue Collection
Total Expenditure
ADP
Non-ADP
Overall Deficit (Excl Grants):
Foreign Grants
Foreign Loan-Net
Foreign Loan
Amortization
Domestic Borrowing
Bank Borrowing (Net)
Non-Bank Borrowing (Net)
Net Aid Requirement
Net Aid Requirement (USD)
Gross Aid Requirement
Gross Aid Requirement (USD)

Crore Tk

RBFY14

13.7
18.7
6.0
12.7
5.0

156,671
216,222
60,000
156,222
59,551

13.3
18.3
5.1
13.2
5.0

Growth
FY15 over
RB FY14
16.8
15.9
33.9
8.9
13.4

0.5
1.3
2.0
0.6
3.2
2.3
0.9
1.8
1.8
2.4
2.4

5,956
12,613
21,058
8,445
40,982
29,982
11,000
18,569
2.4
27,014
3.4

0.5
1.1
1.8
0.7
3.5
2.5
0.9
1.6
1.6
2.3
2.3

4.2
43.3
25.9
0.1
5.6
4.1
9.6
30.7
30.7
21.1
21.1

% of GDP

182,954
250,506
80,315
170,191
67,552
Financing
6,206
18,069
26,519
8,450
43,277
31,221
12,056
24,275
3.1
32,725
4.1

Crore Tk

% of GDP

71.3% of incremental deficit will be financed by foreign sources

CPD (2014): An Analysis of the National Budget for FY2015

33

III. PUBLIC FINANCE FRAMEWORK

Share of domestic financing 64.1% (68.8% in RBFY14)

Tk 31,221 crore (46.2%) will come from the bank borrowing (50.3% in
RBFY14)

Tk 12,056 crore (17.8%) will come from non-bank sources (18.5.0% in RB of FY14)

Share of foreign financing will be

35.9% in FY15 (31.2% in RB of
FY14)

Gross foreign aid requirement

will be around USD 4.1 bln
(USD 3.4 bln in RBFY14) an
almost impossible target in view
of only USD 2.4 billion being
received during Jul-Apr FY14.

CPD (2014): An Analysis of the National Budget for FY2015

Sources of Deficit Financing

34

CPD (2014): An Analysis of the National Budget for FY2015

35

IV. FISCAL MEASURES

Personal Income Tax

Personal income tax threshold has remained the same at Tk. 2,20,000

Needs to be revised upwards to Tk. 2,50,000 considering the current

inflation rate (7.48% in April, 2014)

Taxable threshold in Bangladesh is lower than in India, which is

IRs. 2,00,000 (equivalent to Tk. 2,56,000)

Threshold for women and senior citizens has been revised upwards to Tk.

2,75,000 from Tk. 2,50,000

For Physically challenged: the threshold has been increased to Tk. 3 lakh50

thousand from Tk. 3,00,000

New threshold has been added for and war-wounded freedom fighters at
Tk. 4,00,000
Welcome moves to lessen the pressure on marginal taxpayers

CPD (2014): An Analysis of the National Budget for FY2015

36

IV. FISCAL MEASURES

Personal Income Tax

The fourth slab have been changed in FY15 (from 3 lakh to 5 lakh) and a new fifth
slab of 30 lakh has been added

A new marginal tax rate of 30% has been imposed for income higher than Tk.

44,20,000, i.e. to be applicable on persons with a monthly salary of about

Tk. 3,70,000
Laudable move towards progressive taxation and higher resource mobilisation

Proposed Individual Tax Rates

Income Threshold (Yearly)

Tax Rate

Taxable Income (Monthly)

On first Tk. 2,20,000 of taxable income

On next Tk. 3,00,000 of taxable income
On next Tk. 4,00,000 of taxable income
On next Tk.5,00,000 of taxable income
On next Tk.30,00,000 of taxable income
Balance of Income above TK 44.20 lakh

nil
10%
15%
20%
25%
30%

1 to 18,333
18,334 to 43,333
43,334 to 76,667
76,668 to 118,333
118,334 to 368,333
368,334 and above

CPD (2014): An Analysis of the National Budget for FY2015

37

IV. FISCAL MEASURES

Wealth Surcharge
In FY15, rates of wealth surcharges have been thoroughly revised

20% surcharge will be imposed on individuals with wealth between Tk. 20 crore

to Tk 30 crore and 30% surcharge on assets above Tk 30 crore

Positive move to increase revenue and to improve distributive justice

Corporate Tax
Tax for Non-Publicly Traded Companies has been decreased from 37.5% to 35%

Minimum Turnover Tax has been reduced to 0.50% from 0.30%

Gap with publicly traded companies has been narrowed down

This will support SMEs

Other corporate taxes ( publicly traded companies, Banks, Insurance, mobile phones)
remain unchanged

CPD (2014): An Analysis of the National Budget for FY2015

38

IV. FISCAL MEASURES

Tax at Source
Rate of tax at source on the deed value of land has been increased

from 3% to 4% in areas other than the important commercial and posh

areas within the jurisdiction of RAJUK and CDA.
Besides, tax at source has been imposed at 3%, 2% and 1% on

registration value in other City Corporations and municipalities at

district headquarters, other municipalities, and other areas outside
municipalities respectively.
Good move to earn additional revenues

CPD (2014): An Analysis of the National Budget for FY2015

39

IV. FISCAL MEASURES

Undisclosed Income
Scope of voluntary disclosure of income by paying tax at normal rate plus

an additional 10% penalty remains unchanged

Scope to invest in government treasury bond paying only 10% tax remain

unchanged
Opportunity to whiten black money by investing in residential building

and apartments
This is financially and morally unacceptable
Moreover, this provision is an unjust scheme that creates a culture of tax

evasion. This is also discrimination against honest tax payers. Contradicts other
measures of taxation
The Finance Minister opted to remain silent about it in his budget speech

CPD (2014): An Analysis of the National Budget for FY2015

40

IV. FISCAL MEASURES

Import Duty
Significant reduction in import duties has taken place
Supplementary Duty (SD) on 770 items has been changed loss of Tk. 500 crores!
To help local industries, several Customs Duties (CD) have been reduced on raw

materials used in paper, glass, rubber, furniture and plastic industries

Import duty on raw materials used in textile sector has also been reduced to 10%

from 5 % and from 5% to 3%

It appears that for some items reduction in SD was paralleled by rise in CDs to

give protection to domestic industries

Tariff value of crude petroleum has been increased by $ 8/barrel (tariff value of

other refined petroleum products also increased by 9 cents/litre). This has both tax
implications and subsequently subsidy implications

CPD (2014): An Analysis of the National Budget for FY2015

41

IV. FISCAL MEASURES

Import Duty
2 more slabs have been added with the existing 10 slabs of SD (15% & 200%)

Raw materials of Pre-Fabricated Building and fire safety equipment have been

fully exempted from import duties

This should help RMG owners to relocate their factories and to help address

compliance issues in RMG industry

SD on Motor Vehicles
SD on 2 types of cars have been reduced: from150% to 100% for 1751-2000cc

cars and from 250% to 200% for 2001-2750cc cars: Will help the rich!
60% SD has been imposed on import of new hybrid cars

SD on Microbuses and Double Cabin Pickups has been increased too

CPD (2014): An Analysis of the National Budget for FY2015

42

IV. FISCAL MEASURES

Export Duty
10% new export duty has been imposed on Rice bran
Will reduce the pressure on imported edible oil (import duty on edible

oil has been raised)

Tax at Source
Reduction in tax at source (from 0.8% to 0.3%) for garments exports:

A major incentive

For all other export sectors tax at source has been reduced from

0.8% to 0.6%

In the backdrop of the difficulties faced by the jute sector (drastic

reduction in export), the sector should receive no less support relative to

RMG

CPD (2014): An Analysis of the National Budget for FY2015

43

IV. FISCAL MEASURES

VAT
The forthcoming VAT Law 2012 (to be implemented from June, 2015)

broadly aims to undertake the following:

Substantial

improvements
arrangements

in

VAT

administration

and

staff

Decentralisation of field offices

Extensive improvements in information technology
Specialisation of tax employees to cater to a range of specialized

functions for the taxpayers

Assignment of tax officials
Establishment of Processing centre, Data centre and Contact centre

A number of key initiatives remain incomplete

The VAT strategic plan aims to achieve a VAT-GDP ratio of 4.6 percentage

points (which currently stands at 3.9% in RBFY2014)

CPD (2014): An Analysis of the National Budget for FY2015

44

IV. FISCAL MEASURES

VAT revenue (as percentage of GDP)

Bangladeshs

VAT
rate
coincides with the standard
VAT rate of 15 to 20 per
cent

Chad
Bangladesh
Togo
Guinea
Pakistan
Nepal

Bangladesh fares very poorly as

Niger

compared to other low income

countries in terms of VAT-GDP
ratio

Average low income

Rwanda
Ethipoia
Madagascar
Burkina Faso

In 2011 Bangladesh lagged

Tanzania
Average lower middle income countries

Average upper middle income countries

Average high income countries
Uganda
Mali
Zambia
Benin
Malawi
0

behind 15 out of the 16 lowincome countries considered

in the analysis; if target of
4.6% is achieved, Bangladesh
will be behind 11 of the 16
countries

Source: IMF (2011)

CPD (2014): An Analysis of the National Budget for FY2015

45

IV. FISCAL MEASURES

FY2015 budget proposals which ought to be appreciated:
Launch of online registration from 01/01/2015 and online filing of return by end

June, 2015
Should be implemented at the earliest to ensure widening of the tax base

Setting a cap for maximum penalty of VAT evasion

1% Health Development Surcharge and tax incidence hike for cigarettes
Will the new money be spent on health Sector?
Tax exemption of services related to the export-oriented industries
Will benefit exporters and overall export

Existing 23 sectors under the VAT regime will be charged the standard VAT rate

of 15%
Removal of the truncated base value system in line with the new VAT Law

CPD (2014): An Analysis of the National Budget for FY2015

46

IV. FISCAL MEASURES

VAT enhancement in English medium schools, jewellery items and land

development and building construction sectors

Luxury items have been targeted needs to be appreciated

Welcome fiscal measures:

VAT reduction on edible oils to stabilize consumer prices
Reduction of supplementary duty on filament bulbs

Exemption of kidney dialysis procedures from VAT

Fixed tax on replacement sim
Hopefully, this would act as a measure to curtail disputes with the mobile companies

CPD (2014): An Analysis of the National Budget for FY2015

47

IV. FISCAL MEASURES

Tax Holiday
Existing tax holiday facilities have been extended till June 2019 (Accelerated
Depreciation has been reinstated for new industries)
Tax holiday period extended from 7 years to 10 years for the existing industries in

LDAs and the new ones ( 2014 to 2019)

Proper implementation must be ensured to prohibit misuse of the facility
5 years tax exemption for Demutualised Stock Exchange
This may not encourage investment until other factors (political stability,

infrastructure, power etc.) for investment are there

Tax Rebate for Industries in LDAs

10% till 30 June, 2019 for the existing ones and 20% for the new or relocated ones
Will be helpful to reduce geographical imbalance in industrialisation

CPD (2014): An Analysis of the National Budget for FY2015

48

IV. FISCAL MEASURES

Tax administration
Strengthening NBR needs to be addressed at the earliest given the uphill task in the

form of augmenting challenging revenue targets for FY2015

FY2015 budget mentions that around 9000 new positions have been created to

strengthen functioning of NBR

Some of the initiatives including simplification of income tax return, e-payment

system, e-TDS system and e-filing, tax administration retrieval system,
implementation of the ASYCUDA system have already taken place
Several initiatives are yet to be realized
Implementation of New Income Tax law (draft prepared); Direct Tax

modernization program not fully enforced; Business Identification number (BIN)

program not implemented; Bills as regards amendments of Acts on Tax, VAT,
Customs, Civil Procedure Codes for accommodating ADR are progressing at
slow pace
Expediting the modernisation plan through adequate financial and human resources

will be crucial in the above regard

CPD (2014): An Analysis of the National Budget for FY2015

49

CPD (2014): An Analysis of the National Budget for FY2015

50

CPD (2014): An Analysis of the National Budget for FY2015

51

a. AGRICULTURE
Allocation for agricultural & allied sectors (AAS) is decreasing
Figure: Share of AAS in Total Budget

Figure: Share of AAS in Total GDP

Average share of AAS in total budget was 10.8% during FY10-FY14, but reduced

to 7.6% in FY15
Average share of AAS in total GDP was 1.64% during FY10-FY14, but reduced

to 1.43% in FY15
Allocation for the Ministry of Water Resources increased by 30.6%. This is

mainly due to rise in development budget by 40%.

CPD (2014): An Analysis of the National Budget for FY2015

52

a. AGRICULTURE
Agricultural subsidy remains constant at Tk. 9,000 crore
It was 4.2 % of total budget in FY14 which with decline to 3.6% in FY15.
CPD estimates that if current administered prices of fertilizer in local market

remain same and international prices prevail at the average prices of last 12
months, GoB will need Tk. 4,679 crore (52% of total Ag. Subsidy) to underwrite
the projected fertilizer demand of 43.7 lac MT in FY15.
It could adversely affect the subsidy allocation for other agri-inputs subsidies such as

seeds and irrigation

To ensure fair prices of agricultural commodities, an Agricultural Price

Commission needs to be set up on an urgent basis to ensure incentive

price for the producers wile maintaining market stability
Introduction of Authoritative Land Records would help to reduce land

litigation. Use of PPP to implement the project would also be a good move.

CPD (2014): An Analysis of the National Budget for FY2015

53

a. AGRICULTURE
Food adulteration is a huge problem in Bangladesh. The Pure Food Act,

2013 has been enacted but its implementation has not started yet.
Pure Food Authority needs to be established urgently

Formulation of the National Shrimp Policy 2014 would help Shrimp

farming.
Zero duty on poultry & livestock feed item Sorghum, Millet, Guar

meal, & Zeolite

will reduce the prices of poultry feed, and

is expected to help the poultry farmers who have suffered during the

political turmoil last year

Providing identity card to fishermen is a good initiative. If there will be any

government support for them in future, it will targeting

CPD (2014): An Analysis of the National Budget for FY2015

54

CPD (2014): An Analysis of the National Budget for FY2015

55

b. INDUSTRY
Enhancing private investment within short to medium term requires a set of well-

targeted and well-designed fiscal and budgetary measures

Need to address the supply side and demand side challenges
A set of fiscal and budgetary measures has been announced in the national budget

FY15 which partly addresses those challenges

Fiscal measures (direct impact on investment, production, export and sales)
Supply side issues: by reducing operational cost ; by enhancing revenue income
Demand side issues: by enhancing households income and by reducing price of

consumer products
Public investment (medium to long term impact on private investment)
Supply side issues: by enhancing investment in physical infrastructure (e.g.

transport, power and energy) and social infrastructure (human resource

development)
Demand side issues: by creating new jobs through increase in public investment

CPD (2014): An Analysis of the National Budget for FY2015

56

b. INDUSTRY
A number of measures, however, constrain attaining the targets

Adverse impact on domestic industries due to reduction of CD/SD on imported

finished products: reduction of tax incidence: from -3% to -56%

Insufficient allocation for key infrastructure ADP projects
Adverse impact on consumers for possible rise in retail price of consumer goods

and services due to enactment of new VAT act along with withdrawal of VAT
exemption and reduced VAT
Curiously, proposed budget allocation for the Industrial sector in FY15 is lower than

that that of RADP14 (less than 21% and share of total public expenditure to fall by
0.6% point)
Reduced allocation for a number of ministries such as Industries, Labour and

Employment but increased allocation for Jute & Textiles, Commerce, Expatriate
Welfare and Overseas Employment: Deprive private sector in getting early benefit
ADP allocation (Tk.1830 cr.): 32.9% less than RADP14; however, inclusion of self

financed projects (Tk.348 crore) has decelerated the extent of negative growth
CPD (2014):(-20%)
An Analysis of the National Budget for FY2015

57

b. INDUSTRY
43 projects related to industry sector are currently under implementation: a total

of 24 projects are supposed to be completed by FY15 as per project timeline

ADP15 claimed that 16 projects are likely to be completed in FY15: of these, 9

projects will near completion level if full budget allocation is made in FY15:
Positively contribute to investment in the private sector
A number of those projects remain far behind the targeted timeline: Shahjalal

fertiliser (87%), API Park (70%), BSCIC industrial estates in Sirajgonj (38%), and
Borguna (54.9%), Comilla industrial estate (1.7%), strengthening of BSTI (88%),
establishment of four textile vocational institute (18%); BMRE of existing cloth
processing centre at Narshingdi (17%): overrun of time and cost is likely to reduce
the expected return from these projects

CPD (2014): An Analysis of the National Budget for FY2015

58

b. INDUSTRY
Small and Medium Enterprises (SMEs): Subsidised credit and refinancing facilities for the
SMEs will continue: Likely to promote private investment
Reduction of CDs on various raw materials (from 10-25% to 5-10%) will benefit a
number of industries including glass, ceramics, rubber, paper, furniture, paint, electrical,
plastic and baby diaper: positively contribute to investment, production and sales
Reduction of SD on intermediate input by 5%: positive for local firms producing filament
bulb
Exemption on billet manufacturing raw materials (sponge iron reduced iron) and rise
in import duty of billet and ingot: will provide advantage to local industries against
imported products
Reduction of VAT by 5% for local mobile phone assembling industry: Positive
Rise of VAT on imported mobile phones (10% 15%): Positive for local industries
Rise in CD (25% from existing 5%) on LPG cylinders: will give advantage to local industry
25% CD on energy saving bulbs and electric fan motors; reduction of CD on raw
materials for diaper production: Positive
Introduction of1% Green Tax : Positive market based approach; Limited impact to
reduce pollution; strong enforcement of environmental rules and regulations is required
CPD (2014): An Analysis of the National Budget for FY2015

59

b. INDUSTRY
Leather: Proposed reduction of SD on selected inputs of leather and footwear (e.g.

prepared water pigments; polishes, creams: from 20% to15%): Likely to reduce
production cost
Announcement of stimulus package for leather along with four other export-

oriented sectors may contribute positively: package yet to be detailed out

Slow progress in implementation of relocation of the Tannery Industrial Estate

(10.2% till March 2014 and 51.2% by FY15) raise doubt about full implementation
within the revised deadline: Relocation is planned to be started in March, 2015
Jute: Given the weak state of export and poor competitiveness, the tax deduction at

source from 0.8% to 0.6% would not be adequate to compensate their losses: it may
be further reduced at least at the level of those of the RMG sector (to 0.3%)
Enactment of the Mandatory Packaging Act, 2010 is urgently needed in order to

expand the domestic market for jute sacks and other jute products (CPD, 2014)
Timely completion of project related to HYV jute and seed production (51.2% by

FY15) with a view to pass the benefits to the private sector.

CPD (2014): An Analysis of the National Budget for FY2015

60

b. INDUSTRY
RMG and Textile: Reduction of tax at source from 0.8% to 0.3% (till June, 2015)

along with other financial support have given relief to entrepreneurs and help
undertaking necessary retrofitting measures to make the factories compliant:
Enforcement of minimum wage should be contingent
Withdrawal of duties on raw materials necessary for manufacturing of
prefabricated buildings and full exemption on fire resistant door, emergency light,
and sprinkler system: Positively contribute to improve fire safety in the workplace
Reduction of CD on flex fiber (from 10% to 5%) and artificial staple fibre (from 5% to
3%) would likely to reduce production cost of specific textiles in b/l textile industries
Reduction of SD on imported fabric (e.g. woven fabrics, woven pile fabric, knitted
fabrics, track suit, undergarments) would likely to reduce cost of import: may
benefit the consumers
Ship building: Announcement of stimulus package for ship building along with four
other export-oriented sectors may positively contribute: the package is not detailed out
Fixing import duty at 5% on navigation light, broadcasting equipment and fire
extinguishers: (existing: 15%/kg): reduce the production cost
Science & Technology, ICT:Total allocation increased by 83% over RADP14.
ADP allocation registered a significant rise: 108% growth over RADP14; 11
projects are suppose to be completed in FY15: 71-100% to be implemented
CPD (2014): An Analysis of the National Budget for FY2015

61

b. INDUSTRY
Pharmaceuticals: Reduction of SD on 40 basic raw materials of pharmaceuticals industry

from 15-25% to 5% would reduce cost of raw materials: Positively contribute to the industry
Reduction of CD on 40 raw materials for alopaethic medicine: positively contribute to
local industry
Special Economic Zones: Four SEZs will be set up under Bangladesh Economic Zones
Development Fund at a cost of Tk.81.95 crore with 97% financial support from IDA,
WBs soft-lending facility: Should be set up immediately
Tourism: Published a special booklet on tourism (2014-20 plan; long term plan: 2014-25)
Short term projects: 59; medium term: 49 and long term: 19 (total 127): A separate
ministry for tourism sector
Significant reduction of total allocation (-43% over RADP14) mainly due to reduction
of development expenditure (-55% over RADP14) particularly in project on
upgradation of Shahjalal International Airport
Enhanced allocation for construction of motels and refurbishment of hotel in Coxs
bazar: quick implementation is needed
PPP initiative for developing exclusive tourist zones: still at project development stage
Seven unapproved allocated projects for tourism development: Need ADP allocation
Special Tourism Fund for development can be set up (e.g. Malaysia)
CPD (2014): An Analysis of the National Budget for FY2015

62

b. Industry
Labour
Significant reduction of allocation for the Ministry of Labour (-23.4% over

RADP14) mainly due to reduction of development expenditure (-47%)

This has been partly covered with significant allocation under self-financed projects

under labour related projects of different ministries (Tk.413.6 crore)

Slow progress in skill development project (under Ministry of Education and

Religion: 32% by June, 2105 supposed to be completed by June 2014)

Poor progress in establishment of hostel for female garment workers at Ashulia,

Savar & Dhaka (2% by FY2015; completion period: June, 2017).

Unapproved and unallocated project on establishment of 9 modern fire service

& civil defense station in areas with concentration of garment industries: Need
allocation and quick implementation
Few welfare centres for workers (50): allocation required for setting up more

health centres in industrial zones

CPD (2014): An Analysis of the National Budget for FY2015

63

CPD (2014): An Analysis of the National Budget for FY2015

64

c. CAPITAL MARKET
Capital market has remained stable during FY14: DSEX index has increased by

11.7%; total trade value by 9.4% and market capitalisation by 16.3%

11 companies have offloaded IPOs during FY14 mostly manufacturing

companies: concerns regarding poor base of some these companies: weak

oversight during the approval stage
Proposal for tax exemption facilities for demutualised stock exchanges for over 5

years in graduated rate would help to build confidence on the bourses to potential
international institutional strategic partners
Remaining works of demutualisation (e.g. finding out strategic partners) should

be completed on time.
Retail investors will get some relief because of rise in tax exempted dividend

income from Tk.10,000 from Tk.15,000

CPD (2014): An Analysis of the National Budget for FY2015

65

CPD (2014): An Analysis of the National Budget for FY2015

66

d. ENERGY AND POWER

Total allocation for fuel and energy sector has been increased by16.5% in FY15 over

RADP14); but sectoral allocation in terms of total allocation will remain same (4.6%)

Development expenditure has increased consistently (in constant term) since FY2010 (Figure)

Power: Allocation for power sector has increased by 16.7% (over RADP) mainly due to rise

in development expenditure

Out of 13 projects listed as projects to be completed by FY15 only 1 project is likely

to be completed while 3 projects will be completed above 50 % and rest 9 projects

below 50%

Increased subsidy allocation for BPDB in FY15 (Tk.7000: 14.8% higher than last year):

perhaps to compensate higher cost burden for procurement of petroleum at higher price
after the adjustment of tariff value (from US$32/barrel to US$40)
7000

Revenue and Development Expenditure in Fuel and Energy Sector (in constant term)

200

6000

150

5000
4000

100

3000
2000

50

1000
0

0
FY2006

FY2007

FY2008

FY2009

Development Expenditure
CPD (2014): An Analysis of the National Budget for FY2015

FY2010

FY2011

FY2012

FY2013

Revenue Expenditure

67

d. ENERGY AND POWER

Energy & mineral: Allocation will be increased by16% but reduced in share of total

expenditure (-0.25% point)

Development expenditure: Reduction in allocation in investment programme, technical

assistance and JDCF (-3%, -68% and -73% respectively) will be outweighed by
increased allocation for self finance projects (24.8%)
Number of projects has doubled (58 vis--vis 29 in RADP 14); highest allocation

under self-financed projects (34 projects)

Four unapproved projects (170% higher than ADP 14): Maheshkhali-Anowara gas

transmission line need to be included in ADP with adequate allocation

3 projects related to gas transmission and distribution are likely to be completed by

June, FY15: improve supply of gas at consumers end (industry would be benefitted)
Mixed progress in 28 projects to be completed by June, 2015 (Table)
7 projects-max. 50% & 19 projects max 75% to be disbursed by June, 2015
Projects which cost over Tk.100 crore and are supposed to completed by June, 2015

will not be completed on time: 4 projects-less than 20% & 10 projects max 100% by
June, 2015
CPD (2014): An Analysis of the National Budget for FY2015

68

d. ENERGY AND POWER

As per the budget speech of the FM, establishment of an LNG terminal (at

Maheshkhali Island) still in consideration: No immediate hope

Increase in tariff value for crude petroleum as well as for other refined petroleum

products along with drastic reduction of subsidy for BPC (from Tk.7350 crore to
Tk.2800) would require significant upward adjustment of tariff at retail level: likely to
increase cost of fuel in production and increased households expenditure- adverse impact
Rooppur nuclear power plant (1st Phase) is a fast track project: 50% of the project

cost has been allocated for FY15 (completion due in FY17)

Status of implementation of all projects which are supposed to be completed in FY15 (except self financed)
No of projects
Share of possible
suppose to be disbursement by June FY15 for
No of
completed by
the projects suppose to be
Project Cost
Projects
June, FY15
completed by June, FY15
Less than tk 10 crore
2
1
55%
Between tk.10-50 crore
7
7
47-94%
Between tk 50-100 crore
5
5
89-99%
More than tk.100 crore
14
12
0.8-99%
Total
28
25
CPD (2014): An Analysis of the National Budget for FY2015

69

CPD (2014): An Analysis of the National Budget for FY2015

70

e. ENVIRONMENT

FY15 budget has proposed to introduce 1% Environment Protection Surcharge or

Green Tax on ad-valorem basis on all kinds of products manufactured in Bangladesh
by industries which pollute the environment.
This is a a very good initiative to discourage pollution.
There will be significant challenge in estimating and realizing this tax
Identification of polluting industries will also be a challenging task

In order to implement this measure, capacity of the department of environment needs to

be strengthened
In order to protect the environment & control pollution of rivers, GoB is planning to

introduce Eco-Tax
a very good initiative; would help reduce pollution

Similarly, tax holiday-facilities for pollution-free Hybrid Hoffman Kiln (HHK) brickfields

would help reducing air pollution

Conversion of wastes into compost fertilizer with wastes collected from all city

corporations and municipalities in an eco-friendly waste management system will be

useful to improve the environment.

Guidelines are yet to be formulated to utilize Bangladesh Climate Change Resilience Fund

CPD (2014): An Analysis of the National Budget for FY2015

71

CPD (2014): An Analysis of the National Budget for FY2015

72

f. DEFENSE
Defense Budget (Tk. Crore)

Explicit allocation for Defense

services is 6.6% of total

expenditure (7.0% in RBFY14)
One may expect this allocation

to increase at the end of the

year as per past trend
Defense Budget as % of Total Budget

CPD (2014): An Analysis of the National Budget for FY2015

Defense Budget as % of GDP

73

CPD (2014): An Analysis of the National Budget for FY2015

74

a. EDUCATION
Allocations for the Ministry of Education (MoE) & the Ministry of Primary

and Mass Education (MoPME) have increased by 16.4%.

However, the allocations for these two ministries as percentage of total

budget is 11.7% which are lower than the average allocation of 14.1%
during FY10-FY14.
Allocation for the MoE & MoPME is 2.2% of GDP which is slightly higher

than the average share during FY10-FY14 (of 2.1% of GDP) Not
increasing!
Figure: Share of MoE & MoPME in Total Budget
In FY10 allocation for MoE & MPME

was 16.3% which has declined

to 11.7% in FY15

CPD (2014): An Analysis of the National Budget for FY2015

75

a. EDUCATION
Education Revenue Expenditure in real
terms (base 2005-06)

Education Development Expenditure in

real terms (base 2005-06)
5000
4500
4000
3500
3000
2500
2000
1500
1000
500
0

12000
10000
8000
6000
4000
2000
0

Revenue Exp Allocation

Revenue Exp Expenditure

Dev Exp Allocation

Dev Exp Expenditure

Allocation for revenue expenditure on Education (in real term) is falling during

FY11.
Development expenditure had been much lower than the allocation since FY11
CPD (2014): An Analysis of the National Budget for FY2015

76

b. HEALTH
Allocation for the Ministry of Health and Family Welfare (MoHFW) in FY15 has

been increased by 17.7%.

However, the allocation as percentage of total budget is 4.5% which is lower

than the average allocation of 5.7% during FY10-FY14.

Allocation for the MoHFW is 0.83% of GDP in FY15 which is lower than the

average share of 0.86% of GDP during FY10-FY14 Stagnating!

Figure: Share of MoHFW in Total Budget
In FY10 allocation for the MoHFW
was 6.6% of total budget which dropped
down to 4.5% in FY15

Introduction of Social Health

Insurance Programme is a timely

initiative.
Use of revenue received from the 1% Health Development Surcharge on all

imported and domestically produced tobacco products for the treatment and
rehabilitation of tobacco disease-stricken people has to be ensured
CPD (2014): An Analysis of the National Budget for FY2015

77

b. HEALTH
Health Revenue Expenditure in real
terms (base 2005-06)
4000
3500
3000
2500
2000
1500
1000
500
0

Health Development Expenditure in real

terms (base 2005-06)
3000
2500
2000
1500
1000
500
0

Revenue Exp Allocation

Revenue Exp Expenditure

Dev Exp Allocation

Dev Exp Expenditure

Revenue budget allocation and use are declining in real terms

CPD (2014): An Analysis of the National Budget for FY2015

78

c. GENDER

Forty ministries prepared gender budget report for FY 2015

Allocation increased in 31, unchanged in1 and decreased in 8 ministries

Allocation for gender budget in FY 2015 is Tk. 66,739 crore which is 4.98 % of GDP and 27.64% of total
budget
However, when the allocation for gender budget under 40 ministries is added, the amount stands at Tk.

58510 crore.The reason for the anomaly in allocation for women is not clear.

This year`s allocation is 11.68% higher than FY 2014

Table: Allocation for gender budget

Year
Total (Tk.Cr.) %of Budget %of GDP Gender Budget for No. of Ministry
FY13 (R)
54,304
28.68
5.23
25
FY14 (R)
59,756
27.64
5.06
40
FY15(P)
66,739
26.64
4.98
40

Tax free income for women has been raised from Tk. 2.5 lacs in FY 2014 to Tk. 2.75 lacs in FY 2015

Special allocation of Tk. 100 crore is allocated for development of women

An amount of Tk. 100 crore was allocated in the budget for FY 2014. However, how much has been

utilized is not known

Women from rural areas should be provided training on small business in order to access resources

from this fund.

CPD (2014): An Analysis of the National Budget for FY2015

79

c. GENDER
Top 20 ministries according to the share of total allocation in FY 15

Bottom 20 ministries according to the share of total allocation in FY 15

% of Total % of Total
% of Total % of Total
Ministries
in FY 15 in FY 14 (R)
in FY 15 in FY 14 (R)
Ministry of Primary and Mass Education
11.75
11.41
Ministry of Civil Aviation and Tourism
0.04
0.12
Local Government Division
11.23
11.29
Ministry of Labour and Employment
0.05
0.13
Ministry of Agriculture
11.00
12.16
Ministry of Cultural Affairs
0.09
0.08
Ministry of Disaster Management and
Ministry of Information
0.12
0.13
Relief
8.42
8.01
Ministry of Textiles and Jute
0.13
0.12
Ministry of Food
8.25
7.82
Ministry
of
Religious
Affairs
0.15
0.20
Ministry of Education
8.24
8.42
Ministry of Commerce
0.16
0.12
Ministry of Health and Family Welfare
8.24
8.54
Ministry of Science and Technology
0.17
0.18
Power Division
5.36
6.02
Ministry of Land
0.18
0.17
Roads Division
3.15
2.80
Ministry of Expatriates` Welfare &
Ministry of Water Resources
2.96
2.50
Overseas Employment
0.20
0.16
Ministry of Railways
2.59
2.58
Prime Ministers Office
0.25
0.22
Ministry of Women and Children
Affairs
2.14
2.31
Ministry of Youth and Sports
0.31
0.29
Ministry of Social Welfare
1.99
1.63
Ministry of Shipping
0.40
0.46
Ministry of Home Affairs
1.82
1.89
Law and Justice Division
0.41
0.32
Rural Development and Co-operatives
Information and Communication
Division
1.76
1.85
Technology Division
0.47
0.50
Energy and Mineral Resources Division
1.30
1.09
Ministry of Environment and Forest
0.55
0.60
Ministry of Liberation War Affairs
1.30
0.87
Posts and Telecommunications Division
0.55
0.59
Ministry of Chittagong Hill Tracts
Election Commission
0.59
0.48
Affairs
0.93
0.80
Ministry of Public Administration
0.59
0.48
Ministry of Industries
0.79
1.53
Ministry of Housing and Public Works
0.62
0.54
Ministry of Fisheries and Livestock
0.73
0.60
*According to gender budget total allocation in FY 15 and revised FY 14 allocations are Tk. 66,739 crore and 59,756 crore
respectively but according to our summation the values are Tk. 58510 crore and Tk. 53689 crore respectively
Ministries

CPD (2014): An Analysis of the National Budget for FY2015

80

d. CHILD
The number of projects under ADP which concerns the development of children in

Bangladesh has been reduced substantially in FY15

In FY15 the number of ADP projects related to child development stands at

21compared to 55 in ADP of FY14

The allocation for children has also declined
Child related allocation in ADP of FY15 is 1.94% of total budget and 0.36% of GDP

The corresponding figures for previous fiscal year were 3.73% of total budget

and 0.70% of GDP

CPD (2014): An Analysis of the National Budget for FY2015

81

CPD (2014): An Analysis of the National Budget for FY2015

82

e. SOCIAL SAFETY NET PROGRAMMES

Allowances under social safety net programmes (SSNP) remain unchanged since FY

2010.As a result the real value of allowance reduced over the years
Thus the real value of Tk. 300 would be Tk. 221 if price level of April 2014 is

compared with price level of July 2010 (CPI in July 2010 and April 2014 was
147.19 and 198.93 respectively)
Honorarium for freedom fighters has been increased from Tk. 2000 in FY2014 to

Tk. 5000 in FY 2015.

This is a positive move as many freedom fighters live in abject poverty without

having any source of income.

A special allocation of Tk. 50 crore has been proposed for construction of houses in

divisional and district towns for neglected segment of the society

This is a positive initiative. However, this proposal should be translated into

implementation.

CPD (2014): An Analysis of the National Budget for FY2015

83

CPD (2014): An Analysis of the National Budget for FY2015

84

LOCAL GOVERNMENT

Allocation for local government division as a percentage of total budget is 6.17

per cent which is almost similar (6.16 per cent) compared to the last years
(2013-14) revised budget. Also, Growth rate is about 16.08 per cent over
2013-14 revised budget.

Allocation for LGD in the Total Budget (FY2011-12 to FY2014-15)

Fiscal Year Budget for Local
Government (Crore
Taka)
2011-12

2012-13
2013-14
2014-15

10,909
(6.67)
12,433
(6.48)
12,961
(5.83)
15,464
(6.17)

CPD (2014): An Analysis of the National Budget for FY2015

Revised Budget for Local

Government (Crore Taka)
10,393
(6.45)
13,220
(6.98)
13,322
(6.16)

Actual budget for local

government (Crore
Taka)
9,442
(6.19)
12,314
(7.08)
6177.6
(Upto March, 2014)

85

LOCAL GOVERNMENT
As is usually the case, budget speech contains several promises for

improvements, but does not refer to any specific area of policy intervention
Allocation for LGD in ADP remains stagnant, with the share coming down

from 19.0 per cent (revised 2013-14) to 16.8 per cent of ADP
The speech stated about vesting more power and authority to the rural

local government institutions but nothing is said about the urban local
government institutions.
Creation of specialized bureaucracy may lead to incurring unnecessary

revenue expenditures; it is unlikely to contribute to development of local

government and will not ease the dependency of local government on
central government
Elected representatives capacity development programmes need to have

more allocation.
CPD (2014): An Analysis of the National Budget for FY2015

86

DISTRICT BUDGET
(As Percentage of Total District Budget)
FY 2013-14

FY 2014-15

Tangail

Tangail

Khulna

Chittagong

40.53

59.87

45.83

36.97

27.68

36.10

40.14

59.47

40.13

55.13

63.03

72.32

63.90

59.86

Total
33.16
Development
Total Non66.84
development
Sector-wise Allocation

Barisal

Rajshahi

Rangpur

Sylhet

RANKING
(WEIGHTED
AVERAGE)

Education
(17.06%)

Roads
(13.04%)

Railway
(20.19%)

Local
Government
(18.55%)

Education
(15.33%)

Education
(28.53%)

Top 2

Primary and
Mass Education
(11.40%)
Disaster
Management
and Relief
(8.76%)

Education
(12.18%)

Education
(10.57%)

Railways
(14.18%)

Local
Government
(9.33%)

Education
(11.05%)

Home (9.89%) Local

Government
(13.11%)
Primary and Health and
Mass
Family
Education
Welfare
(8.49%)
(9.45%)

Home
(11.67%)

Primary and
Mass
Education
(11.54%)

Local
Government
(12.91%)
Primary and
Mass
Education
(11.70%)

Local
Government
(8.71%)

Local
Government
(9.72%)

Home (9.21%) Primary and

Mass
Education
(7.92)
Water
Home
Resources
(7.10%)
(8.77%)

Home
(11.53%)

Local
Government
(8.24%)

Health and
Family
Welfare
(9.20%)

Health and
Family
Welfare
(8.13%)

Health and
Family
Welfare
(9.07%)
Railways
(6.79%)

Top 3

Top 4

Top 5

Health and
Food
Family Welfare
(7.59%)
(8.32%)

CPD (2014): An Analysis of the National Budget for FY2015

Education
(14.98%)

Education
Local
Government
26
(11.75%)

Top 1

Primary and
Mass
Education
(8.94%)
Food (7.92%)

Local Government
25

Primary and Primary and Mass

Education
Mass
Education
16
(11.37%)
Home
13
Railways
10

87

DISTRICT BUDGET
Allocated
amount for 7
districts
(in crore taka)

Estimated
budget for 64
districts
(in crore taka)

Estimated budget for

64 districts as a % of
National Budget 201415
(in crore taka)
1,79,163.40
71.52

Total District Budget

19,596.00

Development Budget

7703.82

70434.92

(39.31%)

(39.31%)

9937.87

90860.52

(50.71%)

(50.71%)

Non-development
Budget

81.57

70.86

Share of non development budget (50.71%) for these 7 districts are in harmony with the

national non-development budget (51.19%).

Share of development budget (39.31%) is a little higher than that of the national budget

(34.47%).
If the current budget proposed for all 64 districts, it would have taken about 70% of the

total budget leaving about 30 % for the national budget which would have not been
sustainable.

CPD (2014): An Analysis of the National Budget for FY2015

88

CPD (2014): An Analysis of the National Budget for FY2015

89

VIII. ECONOMIC REFORMS

It may be recalled here that CPD, in its State of the Economy report released on

June 4, 2012, has argued in favor of undertaking rigorous institutional reforms and
policy measures to enable Bangladesh to graduate to the next phase of
development. Later on, the budget speech 2012-13 recognized the need for
undertaking second generation reforms and consequently a dedicated section was
placed on reforms. This was one of the novelties of Budget FY2012-13. This is
definitely a positive move which has been continued over two successive years i.e.
FY2014 and FY2015.
CPD in its Proposals for the National Budget FY2015 released on May 4, 2014

stated that macroeconomic performance and budget implementation will critically

hinge on non-economic dimensions of institutional and policy environment in the
country : (i) implementation capacity of the state; (ii) oversight capacity; (iii) capacity
for reforms.
In line with the earlier two budgets, FY2015 budget has presented a list of policy

reforms and programmes under three broad heads: (i) Implemented Policies and
programmes ; (ii) Ongoing priority programmes; (iii) Programmes yet to be
completed.
CPD (2014): An Analysis of the National Budget for FY2015

90

VIII. ECONOMIC REFORMS

Selected Policies/Programmes in FY2015 Budget according to the three
categories identified by the CPD
Implementation capacity
(Human resource management,
devolution
of
power
and
autonomy and data/information
availability and monitoring)
Implemente A state of the art debt database
d Policies
installed to enhance the capacity of
public debt management
The total accounting and human
resource management systems of
Bangladesh Bank brought under
Enterprise Resource Planning (ERP)
software

CPD (2014): An Analysis of the National Budget for FY2015

Oversight capacity
(Rule of law, democracy and
representativeness and control of
corruption and leakages)
Money Laundering Prevention Act,
2012 enacted.
The Exchanges (Demutualization)
Act, 2012 passed in the parliament.
List of large foreign aided projects
prepared, monitoring activities
taken and an index of external
resource mobilization prepared.

Capacity for reforms

(Regulatory reforms,
administrative reforms and
legal and institutional
reforms)
VAT and Excise Duty Act, 2012
enacted
Provision for tax rebate on
corporate social responsibility
spending introduced
The Customs Act, 1969
amended
Facility for refinancing SME
sector through four funds
continued

91

VIII. ECONOMIC REFORMS

Selected Policies/Programmes in FY2015 Budget according to the three
categories identified by the CPD
Implementation capacity
(Human resource management,
devolution
of
power
and
autonomy and data/information
availability and monitoring)
Ongoing
Ensuring appropriate utilization of
priority
project aid
programmes Operationalization of PPP
Public Service Act 2013

CPD (2014): An Analysis of the National Budget for FY2015

Oversight capacity
(Rule of law, democracy and
representativeness and control of
corruption and leakages)

Capacity for reforms

(Regulatory reforms,
administrative reforms and
legal and institutional
reforms)
Controlling
unethical
financial Formulating Audit Act for
practices
budget implementation
Preparing Financial Reporting Act Formulation of Public Servants
and establishing Financial reporting
Act. 2013
Council
Digitization of the Land
Registration

92

VIII. ECONOMIC REFORMS

Selected Policies/Programmes in FY2015 Budget according to the three
categories identified by the CPD
Implementation capacity
(Human
resource
management, devolution of
power and autonomy and
data/information availability
and monitoring)
Priorities Establishing the ICT Capacity
Programm
Development Company/
es yet to
Establishing Tax Information
be
Management and Research
Complete
Centre
d

CPD (2014): An Analysis of the National Budget for FY2015

Oversight capacity
(Rule of law, democracy and
representativeness and
control of corruption and
leakages)

Capacity for reforms

(Regulatory reforms,
administrative reforms
and legal and institutional
reforms)

Setting up Trade Portal by 2012 Simplification

of
Establishing separate clearing investment related laws
and Settlement Company for Establishing Reserve for
settling the transactions in the Reward
and
Financial
Stock Exchange
Incentives Fund
Establishing the National Tax
Tribunal

93

VIII. ECONOMIC REFORMS

A Review of Economic Reforms
Efficacy of Implemented Reforms: It is good that Money Laundering Act, 2012 has been

enacted. However, anecdotal information and global database indicate that a significant
amount (about $1.5 billion annually) is being siphoned off through offshore accounts,
second homes, trade mispricing in the form of over and under invoicing and other
forms of capital flight. A law was framed earlier to set up a Transfer Pricing Cell (TPC)
to address capital flight. On a positive note, FY2015 Budget states that the recently set
up Transfer Pricing Cell will start functioning from 1st July 2014.

Scaling Up: Some initiatives such as performance audit has been undertaken on pilot

basis. But the unfinished agenda is to scale this up on a universal basis.

Preparatory Work : With regard to operationalizing New VAT Law, concerns remain

whether the needed preparatory works (re-designing the VAT administration

processes, acquiring and configuring a new computer system, recruiting and training
new staff etc.) will be completed before the law comes into effect in 2015. Even
though some key preparatory tasks including procurement of new information
technology systems and services were supposed to be completed by the end of 2013,
much of the work remain behind planned schedule.

CPD (2014): An Analysis of the National Budget for FY2015

94

VIII. ECONOMIC REFORMS

Many Important Measures are stalling
In 2013-2014 budgets, 27 programmes were mentioned as programs yet to be completed.
In 2014-2015 budget, the number has remained the same i.e. 27, with 25 initiatives/reforms
carried over from the previous year.
Public Servant Act 2013 is not making any headway for the last couple of years. As per
budget 2014, Formulation of Public Servant Act was awaiting approval of the Cabinet
Committee while in Budget 2015 its status was mentioned as under process. This is an
agenda that demands highest priority.
As per budget FY2015, formulation of Audit Act for Budget Implementation is underway
while the status was the same in budget FY2014 indicating lack of positive movement.
Many important reforms are stalling over the years. For example, in FY2013 budget it was
mentioned that draft Financial Reporting Act was in place. FY2014 and FY2015 budgets
state work in progress.
Although in his FY2009 budget speech, the Finance Minister talked of continuing with
Regulatory Reforms Commissions work, this was not followed up. Time has come to set
up a Task Force to address pending reform measures.
96 ongoing priority programmes mentioned in Budget FY2013 list are included in the list
of 265 ongoing programmes mentioned in FY2015 Budget.
CPD (2014): An Analysis of the National Budget for FY2015

95

VIII. ECONOMIC REFORMS

Missing Agendas
Capacity Building of IMED has emerged as a key factor particularly in view of

implementation of major infrastructural projects in recent times.

Strengthening of local government institutions is needed to involve these closely

with the task of monitoring and implementations of projects within

jurisdiction.

their

Time has come to put in place the following initiatives towards better

Macroeconomic Management:
Set

up an Independent Statistical Commission to validate the

Macroeconomic correlates

Set up Agriculture Price Commission

Set up Local Government Financing Commission
Constitute Public Expenditure Review Commission

CPD (2014): An Analysis of the National Budget for FY2015

96

CPD (2014): An Analysis of the National Budget for FY2015

97

IX. CONCLUDING REMARKS

Our four levels of analyses lead us to the following conclusions:
Macroeconomic correlates are pretty inconsistent and lack due diligence in

their estimation
Key fiscal targets do not reflect reality and lack rigour in designing of the

framework
Fiscal measures are largely in order and tuned to budgetary objectives
The budget has not provided for necessary institutional reforms towards

improved fiscal-budgetary management as well as supportive policy

environment

CPD (2014): An Analysis of the National Budget for FY2015

98

THANK YOU

CPD (2014): An Analysis of the National Budget for FY2015

99