Professional Documents
Culture Documents
Policy)Priori6es)for)2012;2015)towards)the)Long;Term)Goals))
of)the)Na6onal)Comprehensive)Development)Plan
Framework for Economic and SOCial Reforms
ExecutiveSummary
. , , .
Overview'
As recently as 2011, Myanmar was stilllabeled asapariah state, This percep-
tion has changed since President U Thein Sein was elected in March 2011 and his
inaugural speech embraced reform and openness. A year after a series' of politi-:
cally liberalizing measures were introduced. President U Thein Sein announced
a "second-stage of-reforms" in May 2012, focusing on the social' and economic
transtbrmation ofMyanrnar. In accordance with his vision and guidelines, the
• FrameworkforEconomic and SociaIReforms(FESR) was developed in consulta-
tion with senior 'officials of various ministries, and departments of the .govern- .
ment from the period of May-to October; 2012. The FESRoutlines'poliey priori-
ties for the government in the next three years while Identifying keypaiaineters
of the reform process that will allow Myanmar to become a modem, developed
and democraticnation by 2030.
. In this regard, FESR is an essential policy tool of the government to real-
ize both the short-term and long-term potential of Myanmar. First, it provides il
reform bridge linking the ongoing programs of the government to the National,
».", , . . . . j,
Quick Wins
I
J
'. :,.
I: Fiscal and
- '
Tax: Reforms'
.
1.1. Budgetary .
'Ihe.Government ofMyanmar (GOM)· recognizes that maintaining a-stable
macroeconomic: framework is the first order of reforms essential for achieving
the overall reform, agenda. Towards this: e,nd,GOM will ensure sound publicfi-
nancialmanagement.reduce fiscal-deficits and increase preparedness for mitlgat-
Ingshocks, It will pay attention to more effective processes ofbudgetary manage-
ment - from indicative planning and budgetary allocation to a policy-based and,
tax 'inclusive. fiscal-regime. It will also enhance streamlining of various revenne
flows, unify the annual. budget Within a mediumterm framework and move to-
wards effective management .of hard budget constraints, while phasing out .soft
budget constraints currently given to state economic enterprises. GOM will also
develop-the necessary measures to.enhance equitable sharing of resources among
•
various states ·and regions as well as other local governments, , .
1.2. Tax Reform
GOM will first consider simplifying the current tax system, starting with
replacing the commercial tax With a general sales tax at a single rate, with at most
one reduced (or zero) tax rate for basic food items. Raising the exemption thresh-
old for income tax make it.easier to administer, These measures haveal-
Framework for Economic and Social Reforms
ready been proposed by the IMF. Then, GOM will seek a gradual shift in relative
emphasis-from direct to indirect domestic taxation. Some measures that can.be
introduced in near term include introducing a value-added tax, reforming excise
tax, broadening the tax base and applying a variety of revenue instruments in a
coordinated manner.
I
f.
;
• areas where quick wins can potentially be achieved for
2.1. Central BankAutoIlomy
.
3 I
Framework for Economic and Social Reforms
will help to limit currency appreciation pressures and.provide broader benefits to
Myanmar producers andconsumers, GaM has moved to ease exchange restric-
tions by allowing foreign currency purchases for car imports and for health and
travel expenses abroad. But this is only one step and a relatively small one. As· a
matter of urgency GaM will now prepare a plan to gradually remove all exchange
and other non-tariffrestrictions on imports and begin implementing such a plan.
3.2. InvestmentLiberalization
GaM will give highest priority to the drawing up of the necessary proce-
dures as well as environmental and social guidelines for foreign investment in
accordance with the new law recently adopted by Parliament and signed by the
President. Feedback from the business community suggests that it is particularly
importantthatthe lawand procedures are specific as to which sectors are re-
stricted with-respect to foreign iIiv'estnient and does not allow'for discretiori'with
respect to implementation. On the other hand,GOM envisagesthat the foreign
investment lawand Citizens' Investment law will eventually be merged to provide •
a single investment framework in line with AEC goals. While legal frameworks
are being improved, GaM willalso move to considerably reduce the transaction
costs currentlyarising fr?m heavy regulation. .
4. Private .
4.1. ReguJatoryReform
GaM recognizes that improving the regulatory environment for bus-iness
is crucial to enhancing a country's competitiveness and stimulating economic
growth. GaM will ensure that transaction costs will be minimized for domes-
tic small- and medium-sfzedenterpnses (SMEs) throughoutthe business.chain:
starting' from .regulanons for business start-ups, dealing withconstructionper-
mits, employtng workers, registering property, accessing.credit, protecting inv<;s-
tors, paying taxes, trading across bordersenforcing contractsand closing a busi-
ness. Once an ongoingassessment of the business climatein Myanmar has been
completed, it willbe possible for the government to develop a comprehensive
action plan for improving the overall business environment, which will become a
cornerstone for the emergence of a vibrant private sector.
4.2. Tourism
Tourism is a key sector that requires some immediate adjustments to maxi-
mize the gains vallable from the recent development of Myanmar, and become a
primetourtstdestination.The current visa requirements and procedures in place •
for obtaining them are a Significant constraint to both tourists and. businesses,
Consideration should be given to moving quickly to significantly simplified ar-
rangements, such as those currently in place in Thailand.
ternational experience also demonstrates the critical importance ofat least eight .
key budget documents being released to the. public and made available.for dis-
cussion, namely the pre-budget statement, executive's budget proposal, enacted
budget, citizens' budget or guide to the budget for citizens, in-year reports, mid-
year review,end-year report, and audit report. In this regard and building on the
progress made last year, GOM will consider preparing, publishing and making as
many of these reports easily accessible for citizens as possible. •
7.2. Extractive Industries Transparency Initiative
Myanmar has huge natural resources but international experience clearly
shows that such resources can as often be a curse as a blessing. In order to en- .
sure that the extraction of natural resources produces real benefits for the people.
of Myanmar, GOM is presently reviewing the potential value of the Extractive
Framework for Economic and Social Reforms
I
...Many,type,s ofrural infrastructure can be constructed and maintainedusing
labor intensive methods (village and district roads, watershed developmentand
irrigation works, afforestation and reforestation, etc). In those districts with large
f numbers of landless households and high povertyrates an employment gUaran- •
tee for a fixed number of days a year at or just below the subsistence wage could ..
provide a significant safety net for vulnerable families while at the same time
helping to improve local infrastructure and the environment. India has made
such a scheme a cornerstone of its rural safety net; and provides valuable lessons
in starting up and administering such schemes. Local authorities playa, crucial
role in ensuring that the scheme covers all those eligible and in administering
. the funds in a transparent and accountable manner, while technical ministries
need to be on board from the beginning to ensure that the activities carried out·
under the scheme are sustainable and of good quality. If these challenges can be
met, such a scheme could provide a significant boost to the rural economy. It can
be expected that a number of donor agencies would be willing to provide both
technical and financial support for such a scheme.
9.2.LegalFramework for Public-Private Psrtnerships
Public-private partnerships for the development and management of infra-
structure need to be very carefully structured to ensure the appropriate level of,
public benefits and this takes time. But to facilitate the development of such part-
nerships GaM intends to put in place as.soon as possible a clear legal framework,
for such partnerships.
9.3. hnprovingPower Provision
A master plan tor power production and distribution is under preparation.
In the immediate term, however, the system is plagued with frequent interrup- :
lions. Use of emergency generators is one possible quick win that is being consid- .'
ered but this is a relatively expensive option. Accordingly GaM intends to move
ahead as quickly as possible with a program to replace old gas turbine plants with
new and more efficient combined cycle plants that use the same amount of gas
and produce two to three times the amount ofpower.
Framework for Economic and SOCial Reforms
Conclusion'
In conclusion, FESR represents a fist bold initiative of the Government of
Myanmar to reform an economy oncepredicted as doomed. As such, FESR is
• a starting point, not the end. point, of various initiatives.that the country will
undertake in the next few year. It is,also subject to further public consultation,
comments and criticisms, therefore, FESRwill serve as a roadmap for contlnuous
improvement ofreform strategies for the next three years, and it 1001<5 forward 10
deepening the planning process as well as covering new areas for reform in guid-
ing Myanmar on toa path of restoring the glory and growth she has.enjoyed in a •
long period of her history. .
Framework for Economic and Sodal Reforms
1. Introduction
1. Myanmar is the largest country in mainland Southeast Asia, and has an
estimated population ofaround 60 million people. It is a home to a diverse group .
of ethnic nationalities, comprising up to 135 groups, situated on a strategic geo-
graphic location bordering the world's two most dynamiceconomies-c-China
and India. Asa result of herexcellent access to large markets, Myanmarcan oper-
ate as an important trading and business hub for foreign partners. Her geography
covers a vast and highly fertile central plain, beautiful snow-tipped. mountain.
ranges and untapped white sarid beaches, extensive coastline with sea access to
Indian Ocean, and throughout the country; she is richly endowed with forests; .
'natural gas and hydropower resources, and precious stones, gold and minerals: ..
Myanmar also has a favorable land-ta-man ratio and has Significant agricultural ,
potential; for instance, given appropriate reforms, its staple rice sector is poised
to return to its historic position of"the rice bowl of Asia:'
2'. For more than-two decades, Myanmar has been. taking several steps. in un-
dertaking comprehensive initiatives towards economic and social reforms. Right, •
after her abrupt transition from a planned socialist economy in 1988,.various .
efforts at economic and political opening have boosted foreignInvestment and •
private sector involvement in the country. These reforms broadly transformed the
socialist economy into a market economy; however, the legacy of isolation and
conflict undercut the progress towards realizing the country's fullest potentials.
Given this background, the new government of President U Thein.Sein, elected
in 2010, has come up With its strongest commitment to chart a new direction for
the country. In fact, President U Thein Sein, in his inaugural address on 31 March
2011, not only acknowledged the country's dire situation regarding poverty and
unemployment but also committed to create "good governance and clean govern"
merit," further calling upon all stakeholders to work together for the good of the
country. .
3. IIi taking further steps in Implementing his commitments to good governance, '!
the new (GOM), has undertaken far-reaching moves towards national reconciIi c ' .
ation with bothpolifical parties and nationality groups. Daw Aung SanSuti KYi;'
was released from house arrestwhile severalhundredpolitical prisoners,
ing famous leaders of the 88 generation, werereleased from prison. The President .'
has also invited several prominent members of Myanmar diaspora to return to
the country to assist with the country's ongoing reforms. The National' League
for Democracy (NID), chaired by Daw Aung San Suu Kyi, has been allowed to
re-register asalegal political party and entered into byelections on 1 Apri12012 .. '
4. The President has also Sought to further consolidateprevious ceasefire agree'>
ments with several armednationality groups, including with the United Wa state" ,
Army (UWSA), the Karen National Union (KNU), Karenni National People's
Party (KNPP) andthe New Mon State Party (NMSP)..On May 32012, he formed <
the "Peace Committee," a new body chaired by himself; to accelerate the process
ofpeace-building in manyconfllct-affectedareas. The Peace Committee has also .
achieved initial overtures in Kachin State towards peace-building despite rising
10
1 "
Framework for Economic and Social Reforms
MDG1,Eradicate
Extreme Poverty and
Hunger
.PoveqyIncidence
UnderwelghtChildren -
Under5 (%)
I
J
FoodPoverty 1nddence
,1
I •
MDG 2; Achieve Universal
! , ;, Educitl,,,,
I,
•} , Primary Level Net
I • FJirollmeilt (%)
i
Literacy of 15-24 Year
Old,(%)
MDG3:Promou Gender
, EqJU>1iiyl Empower Wom",
GtrW Boys bn"PtinuJrj'
School (nitlo)
Girls/Boys in Secondary
School(ratio)
MDG 4; ReduceChild
Mortality
U5 Mortality Rate
(Per'1,000 liVe births)
1n&nt Mortality Rate
, ,, '(Pet1,000liv"births)
MDGs:Improve Matermt
, Health
,,,. '. MatWu Mort'a1ity Ratio ;
,(perl00,OOO'Jh,c births) :
"Birth'Attended bySkilJed
,"' ' 'Personnel(%)
MDG6' CombalHIVIAlD5,
"M8laria ..d Other IlfseaIe3
mit Prevalenc:c"(96 of
Population Aged 15-49) 0.2 (1990) 0.6 (2009) 1.7 (2001) 1.3 (2009) '03 (200!) 0.4 (2009)
Malaria Incidence
(Per ioaecoPopulation)
ThberculQsiS Incidence
(Per 100,000 393 (199O) sse (2009) 137 (1990) 137(1990) 204 (1m) 200 (2009)
Tuberculosis prevalence
(Per 100,000)
Framework for Economic and Social Reforms
MDG 7: Ensure Environ-
SustaiDability
.' Improved Drinking Water
Source(%)
Improved Facility for
Sanitation (%)
I
',_ Source; Development Bank, in 'Iransltion, 20'2.
15: Poverty is frequently associated with landless farmers. Indeed. landlessness is.
a problem facing 24% of those whose primary economic activity is agriculture..
i 'According to the survey cited above (IHJ.,CS 2010), land ownership status and
i .size directly correlates with the escape from poverty, demonstrating the signifi-
•
cant-contribution of asset ownership towards poverty reduction. Landlessness
;has been a chronic problem in the agricultural sector and there has been .very
littleimprovementin this aspect since 2005 when: the ratio was 26%. In fact, the'
.problem increased in the very poorest group of rural households from around
;34% in 2005 to 38% in 2010; therefore. it represents a major causalfactor for rural
poverty. In terms of regional profile, the highest rates of landlessness are found in'
Bago (41%), Yangon (39%) and Ayeyarwaddy (33%) - the three most agricultur-
ally important regions collectively known as the "rice bowl of Myanmar" where
more of the country's staple crop is grown than in the rest of the country together.
16. In this regard. GOM recognizes that land reform is central to rural develop-
ment and essential for inclusive growth. Towards this end, the Pyldaungsu Hlut-
ta)-V (Parliament) enacted the FarmLand Law as well as the Vacant, Fallow and
Virgin Land Management Law in March 2012. Although the Iaws, for thefirst
time in .Myanmar history, allow long-term use of large tracts ofland 'for private'
'investors in agricultural, industrial and contract farming practices, they require
further adjustments in protecting land rights to small holders arid poor farmers.
The parliament has formed an inquiry commission to investigate the impact of
newland laws on rural households, and GOM has also looked into overhauling
land use poHcy. In August GOM also set up the "Land Use Management Corn-
mind; a national level body to oversee effective use ofland resources throughout
the country. The President also set policy guidelines for the relevant government
agencies to address landlessness and indebtedness of rural farmers.
17.J'9rural areas, access to credit also crucial for agriculturai households to es-
cape from poverty and increase productivity. Throughout the country, poor ac-'
cess to credlt has been a binding constraint on agricultural growth. In terms of
indebtedness, the number ofindebted households has significantly declined from
around 48% to 30% between 2004 and 2009; however. debt levels of poor house-
hi>ids are still very high, accounting for 14% Of their total annual consumption
1
Framework for Economic and Social Reforms
expenditure. GaM, through the Ministry of Agriculture and Irrigation (MOAI),
doubled the size of agricultural loans to farmers in 2011. It also gave assistance
to the operations of31 specialized rice companies that provided additionalcredit
in the areas where they set up cooperative farming practices together with small-
holder farmers.
18. With respect to employment, the challenge is neither oflabor force partici-
pation, nor the unemployment rate which is 1.7%. While Myanmar achieves a
decent share ofparticipation at 67% ofthe population aged above 15, the primary
problems are low remuneration and poor returns for those who do participate
and the seasonality of the jobs available to members of poor communities. Bee
cause of this situation, migration has historically. been a source of opportuni-
ties for Myanmar' people to improve their lives and those of their families. In
response to the descent into poverty caused by various economic shocks as.well
as natural.disasterssuch as-floods and droughts; many rural-households-have.
used- migration by some of their members as an important coping mechanism:
! mainly through remittances sent from migrant workers working in.urbanareas
'.1 '"
or abroad. However, migration has also caused major socio-economic problems
such as family separation, potential exploitation and various other risks to mi-
grants, and removal of entrepreneurial individuals from rural communities.
21; Perhaps the most important initiative by GOMin the area ofpreservlng mac-
roeconomicstabilization and accelerating economic growth was to unify the
country's multiple exchange rates into a single rate in April 2012.'This was done
by replacing the official peg with a managed float through a foreign exchange
auction market under the supervision of the Central Bank of Myanmar (CBM).
Meanwhile, the CBM has also announced a redemption plan for the Foreign Ex-
I change Certificates (FECs). used under the previous exchange-rate scheme over
the corning year. The Budget Department ofthe Ministry of Finance and Revenue
I fMOFR) has already Incorporated necessary budget estimation and cost calcula-
tions based on a reference exchange rate of 800 kyats per dollar, which was more
or less in-line with prevailing parallel marketexchange rates at the time when the
new budget law was enacted by parliament In April 2012. Due to these undertak-
ings, the pressures on exchange rate appreciation are now being contained and
the exchange rate has been gradually depreciating since April 2012. The CBM
is now' planning to remove the remaining exchange restrictions, particularly
dropping the requirement to secure private export earnings' as a prerequisite to
import; In the context of a general phasing out of trade licensing to eliminate
nontariff barriers.
22. The MOFR is also drafting a new central bank law that will grant operational
autonomy and proper accountability for the CBM while equipping it with the
treasury functions currently undertaken by state banks. In line with a more au-
tonomous standing, theCBM willalso adopt a consistent monetary policy frame-
work to promote domestic price stability. As with, exchange rate management;
the CBM is beginning to monitor the market situation to ensure .its Interest rate
decisions are appropriate to the current economic outlook.
23..On thefiscalfront, the budget deficitin FY2011!12 has been narrowed due
to lower capital spending. GaM suspended major public works andconstrue-
tion projects by strictly scrutinizing the costs and benefits of these.undertakings;
therefore, deficit reduction became more sustalnable despite the recent increase
in pensions and temporary tax exemptions on key agricultural exports. The adop-
tion of a market-based exchange rate in April 2012 is expected to further reduce
the budget deficit in FY2012/13.'The CBM is gradually limiting the role of deficit
monetization by facilitating more effective use of bond financing, particularly
the development of a retail market for treasury bonds, which would further im-
prove the effective implementation of monetary policy in the country. By having
a series ofin-depth debates on the FY20I2/13 budget, the new parliament is also
contributing to lower deficit targets by vigorously scrutinizing spending priori-
ties and reallocating more resources to poverty reduction, health and education,
while cutting major capital spending. ....
Framework for EConomic and Social Reforms
24.The MOFRhas alsobegun reformingits tax policies and revenue administra-
tion. In-August 2011; the Department ofInternal Revenue abolished the with-
holding tax on imports, and also simplified commercial tax on domestic sales"
to nine tax rates in April 2012.1he DIR also plans to. introduce singletax payer
identification and.self-assessmentto expand the tax base, whileplans are under-
wayto replacethe commercial tax with a generalsales tax. GivenGOM's current
reliance on non-tax revenue from extractive industries, the MOFR is now de"
veloping a medium-term public expenditure framework that can streamline all
revenue flows and effectively target them to building infrastructure and human:
capital: GOM has also recognizedthe need to'improve transparency ofrevemie .
flows from extractive industries and has recently cooperated with international
financial institutions and other international organizations to achieve higherac-
, countabilityin public financial management. .
25. As part of its campaign on good governance, GOM has also introduced an
open tender system to increase transparency arid improve valuations in future
., privatlzations of SEEs. It has also reformed the existingcommittee on
tion where the Vice Presidentwas taskedto be its new Chairman. While further'
, privatization of SEEs· will enhance the government's target ondeficit-reduction,
'--J
the ongoing liberalization and corporatization ofSEEs also limits their losses) .
Although Myanmar has expedited the privatization process involving several
SEEs, particularlyIn the industrial and manufacturing sectors, it has taken a .
more cautious approach to privatizing the public utilities: For instance; in co-
operation with the private sector, GOM organized a national workshop on ICT
developmentin February2012; which outlined a step-by-steppartlcipatory and '.
transparent process of liberalizing and privatizing the telecommunicationsector .
over the next five years. To improve the process, it has also sought technical as-
sistancefrom international organizations, experienced industrial experts as well
as multilateralagencies.
26.While the government is steadily implementingmeasures to improveinvest-
ment and the business environment,it introduced a new ForeignInvestmentLaw
(FIL) in August 2012for ratification by the parliament. The new law will permit
100% ownership by foreign firms, while introducing a series of tax breaks and
easing restrictions on the lease ofIand. GOM is also preparing the final passage
of a new law on Special Economic Zones (SEZ), which is expected to provide
additional incentives for investment in strategic locations along the 1300-mile
long coastal region in Myanmar. Meanwhile, GOM has liberalized the company
registration process and other regulatoryprocesses to further encourageforeign
investors.
I
effective and well-functioning mechanismsto monitor the outcomes, analyzethe
impacts and address capacity gaps to ensure that the achlevementof theAEC .
targets will deliver maximum benefits to the private sector.
I .
ASEAN,hasestab, '
lished a.monitonng mechanism called the AECScorecard, As·3'compliance tool;
theAEC Scorecard reportsprogress in implementing the various ABC measures,
identifiesimplementationgaps and challenges, and tracks the realisation of the.
..
i AECby 2015. By the latest report issued by the ASEAN .sccretarlat.In 2b12,My"
.'
! anmars progress is quite comparable to other ASEAN members except in rneas-
uresto promote free flow of capital (see-Table 3: Myanmar'sScorecard-on ASEAN.'
Economic Integration). However, the AEC,Scorecard only states that Myanmar
has Signed ASEAN-wide agreements. and they have been IntegratedInto national
laws; the actual degree of implementation and.enforcementofspeeific initiatives
may still lag behind the agreed schedule..
, 'r' .
"'. : .
. '.' ,"-:
Framework for Economic and Social Reforms
Table 3: Myanmar's Scorecard on ASEAN Economic Integration
32. Many aspects of Myanmar's cultural heritage, and traditional beliefs and val-
ues are in harmony with modernization' and progress. These beliefs and values
have been drawn upon and appropriately reflected in FESR. We believe that the
conduct of our national affairs more in line with our traditional beliefs and values ,
will be able to accommodate all that the people of Myanmar may wish fodheir .
future. Such conduct will also be welcomed bythe international.commJIDity,,
34. First, the critical need of maintaining peace and stability is emphasised. The
crucial role of the Government to achieve this end has been recognized and high-
lighted. FESR supports and strengthens national endeavours in this area. It in-
cludes proposals and plans aimed at meeting the needs and aspiratlons. of the
people and improving their quality of life, which will contribute substantially to
sustaining peace and stability in the country.
35. Second, national unity is another critical area that must be addressed. FESR
looks to enhance natlonalunityby promoting mutual respect and understanding .
and preserving the cultural heritage and traditions of all the ethnic nationalities
that compose the Republic of Union of Myanmar. .
36. Third, in addition to the security provided by the Tat-ma-daw and the na- .
tional police force, FESR gives due attention to other forms of security such as
in the economic and social sectors. Economic and social security will become
increasingly important for Myanmar in the process of becoming a modern de-
veloped nation.
44. FESR is focused on maximizing the strategic location of the country situated
between the world's two most dynamic economic powers.
/24
Framework for Economic and Social Reforms
forefront of international diplomacy; following in the traditioriofher leading role.
in the non-aligned movement of the 195Qs.and high profile international media-:
tions through the United Nations in the 1960s. to mobilizeeffective cooperation
and coordination on aid management with the international community.
• 47. GOM will therefore set the following targets for'GDP growth, poverty reduc-'
tion arid other economic and socialdimensions ofdevelopmentfor the next three'
years within the existingparameters of the Fifth Five-Year Plan:
i) GOM strives to achievean average annual GDP growthrate of 7.7% '.'
Ii) lhe industrial share of GDP should grow'from 26%to 32% together with
. an increase in the service sector, reducing the currentlyhigh share of ag- .'
riculture. . .
iii) Per capita GDP growth will increase between 30-40% from the base year
of201O, which will help attainthe fust goal ofMDG ill reducing the pov-
erty incidence byhalfover the period 2000-2015.
48. Giventhe above reform measures; GOM now plans to achievesustained eco- .
nomic growth of 7.7%·p.a. over the next fiveyears. Purthertmprovement in-inter-
national policiesincluding. a relaxationof economic sanctions towardMyanmars-
the growing attractiveness of foreign investment; and multilateralassistance will
complement the stride towards this goal.
49. The government will ensure that the current downward trend of inflationary
pressures. inflation has been estimated at a record low of 1.8% in May
0.£ this
year), will be sustained. making the objective of sustained GDP growth realistic
and attainable. . ' . ' .
50. To conclude. the recent progress in economic reforms and growth potential
will eventually allow Myanmar to successfully integrate with the
ASEAN Eto-
nomic Community (ABC) in 2015 while. at the same time, achieve most ofthe
or
targets ofMDGs. Detailed updates economic Integration with AECand socio- .
economic targets underMDGs are outlinedin the following sections. .
SUn this context. the following sections will begin with a brief description of the
{<lvernment's overall approach and actions already undertaken, then distinguish
those issues on which further immediate action can be taken (the "quickwins").
Framework for, Economic and Social Reforms
from those issues where policy and program decisions need to awaitfurther ana-
lyticalwork-and/or consensus building.
exchange rate convertibility and phase out the use ;.>t'FECsthrough -a redemp-
tion,plan,by 2013, In addition" the governmentincorporated an exchange rate
assumption'as closeto the prevailing.marker rate as possible to draw up Its 2012-
13 annual budget. At the same time. government agencies are required to use
the prevailing market-determined rate fortheir foreign transactions through
a gradual process startingfrom April.I, 2012. At the Central.B3.nk,GOM has
been undertaking capacity building and other preparations to maintain a stable
exchange rate in open market operations. Once a stable regime is put in place,
GOMwill strive to maintain the rate at a beneficiallevelconducive to export-led
growth.Since the revenue from new natural gas fields are expected to increase in ,
the nearfuture, GOM,is also preparing necessary measures to.insulatethe flows ,
and to mtnimize their impact on exchange rate stabilityand the inflation.rate,
first" policy in 1997while Imposing strict limits on imports. This pohcy resulted
ill a 'pOSitive of trade for a prolonged period of time although imports
have been rising faster in recent years due to increased imports of capital g6bds,
industrial machinery, and consumer durables. However, GOM has recently lib-
eralized the importation of vehldes.particularly of low fuel use vehiclesarid pas-
senger buses, in order,to easc:he burden of the high cost of transportation ,\n,o
major urban centers. It has also introduced e-licenslng systems for exportand
import businesses, further reducing administrative barriers for trade operations:
Due to these reforms,both the trade and current account deficits are
expected' •
to widen in FY 2012/,13 from the previous year. However, GOM: expects that the
easing of economic sanctions imposed 'In Myanmar by Western countries wi)!..
provide sufficient market access for expo(ters to compensate for potential trade
l26'
- i
57, CBM also plans to set a flexible policy framework to manage the interestrates
• corresponding to the level of reserve money, while allowing greater latitude for
private banks to set interest rates. It will encourage public savings through private
banks as well-as the development of financial instruments such as hire-purchase
agreements, mortgage packages and other credit instruments. Further improve-
Framework for Economic and Social Reforms
ments in financial intermediation will begin by appropriately setting deposit-to-
capital ratios as well as allowing a wide range of collateral instruments to be used.
CBM also plans to support efficient financing of trade and export ofmanufactur-
ing goods; and consider permitting foreign banks to finance externally-oriented
economic activities.
59. GOM also plans to convert the existing commercial tax regime into a value-
added tax (VAT) system using the invoice-creditsystem. Conversion to a broad-
based consumption tax will involve expanding the scope of tax on goods and
services, developing a consistentInvoice-credit system, reforming excise tax poli-
cies and zero rating on exports. Recent actions such as unification oftax rates and
the introduction ora credit system on domestic transactions adopted by GOM
in April 2012'sliould help pave the way for a transition to a: VAT. GOM is, actively
Iearnlngfrom the experiences ofother countries in order to mobiltzeaslgnificant
public education campaign prior to the adoption of such a change, It alsoplans to
undertake other tax reforms such as rationalizinggovernment revenues, broad-
ening the tax base and developing tax instruments critical to' macroeconomic
stability.
66; The opening up of the marketing system to the 'private sector, the approval
of the new land law and the progressive establishment of a market determined
and competitive. foreign exchange rate (see para 53) are all important steps in
providing an improved policy environment for the agriculture 'sector. In addi-
tion it will be important to move quickly to improve smallholder farmers' access
to agricultural credit from the Myanmar. Agricultural Development Bank and
other financial institutions and build some of the critical supportingInfrastruc-
ture, including better rural roads and small-scale irrigation systems:GOM also
recognizes that compiling credible and accurate agricultural statistics are critical
for moving ahead with sector-wide reforms. ' . .
I
Ing feed production and quality. supporting linkages among'agtic'UItutal sub:
• sectors and strengthening supply chaiiis and market linkagesWith neighboring
economies. Special attention will be given to mlmmizing environmental conse-
quences, protec9Dg vulnerablepopulations and'providingcapacitybuilding
livelihood support to localpopulations who are dependent on the sector, Broader
development ofthe rural sector Will alsobe encouragedthrough cashfor workin
publicprojects such as rural road construction,community-driven development
projects, employment-guarantee. schemes for poorest rural households, land
reclamationservices, promotion of one-village-one-product (OVOP) schemes
for smallenterprise development, cooperative societies and encouragingmicro.
smallandmediurn sizedenterprise in rural areas through rnlcrofinance and oth-
er measures.
I
oilier C01.lnt&sishows such resource's eanbe a The
': government rieed to put in place as soori as possible the measures '
'i).ecessary to avoid theresourcecurse and ensure the developmentof such re- •
I
area blessing'for the countryrather than a curse. Of critical importance
Will be appropriate macro-economic policies to manage the impact ofincreased
! demand for Myanmar's exports on the exchange rate and inflation rate and facili-
tate public expenditure smoothing.', ' '
72. The government will undertake transparent, competitive and non-discre-
tionary procedures for the award of exploration, development and production
rights and ensure that future concession agreements meet high social' and en-
vironmental.standards as well,as delivering a transparent and equitable sharing
of financial benefits. In this regard the legal and fiscal frameworks under which
these agreements are made will need to revised and modernized. It will also be
important that the respective regulatory agencies have dearly defined author-
ity; institutional capacity and resources for monitoring regulatory compliance.
Across the energy sector, Myanmar willalso undertake deregulation ofprices, tile
adoption of appropriate taxesand the elimination ofacfoss the board subsidies
while designing pricingand taxation policies to stimulate new exploration illq
production. It will als¢ develop appropriate taiitrs on theservices of, and access
condltions for, monopoly elements of the oii andgas supply chain; in particular
pipelines.' ' "
73: The public at large in Myanmar deserve to benefit directly from access to
affordableenergy, In this regard; GaM is developing a master plan for the elec-
tricity sector as soon as possible, which projects future electricity consumption,
develops a plan for meeting those consumption requirements; and identifies
any necessary regulatory reforms. Since Myanmar has abundant natural gas re- '
sources, it will review the current energy policy, and promote liquified natural
gas for household, commercial and industrial use wherever possible. Efforts will •
be made to increase levels of employment in and the profitability of small scale
and artisanal mining without eroding the necessary environmental and social
standards. " .
Framework for Economic and Social Reforms
74. As part of the process' of reforming management of natural resources, the
government is committed to implementing EITI, which re<l,uires governments t,o
publicly disclose their revenues from oil, gas and milling assets, and for compa-
nies to make parallel disclosures regarding payments, Bysignlng up to the globa]
standard that EITI sets, Myanmar can enhance the accountability and transpar-
ency of her revenue collection efforts. In an accelerated time frame. 'Myanmar
will issue au unequivocal public statement of its intention to implement EITI
and begin extensive collaboration with civil society and companies on BITI iiii.-'
plementation. . . . , ' .
I
I! Infrastructure development
I 7.5. For both agricultural and non-agricultural development in Myanmar it
,I • critical that the government.proceeds quickly with.the.completton. of high.pri-
I,
!
ority. infrastructure projects' already underway while .developing a longer term
strategy and program for infrastructure development. In the immediate term'
• priority also needs to be given to urban transportation systems, upgrading of
k national airports. and clean water utilities which can expected to bring quick and
i
visible benefits. .
76. GOM wilJ emphasize its transport and other infrastructure development to
enhance the' countrys connectivity to regional economies and fulfill the goal of
integrating into the ASEAN economic community; It will give priority to build-
ing infrastructure projectsthat will fill the missing linksidentifiedin the Master
Plan ofASEAN Connectivity, such as transport linkswith India, China and Thai-
laud. In parallel to these links with the neighboring economies, GOM will also
prioritize developing rural-city connections. renovating interstate highways and
upgradingthe existing road infrastructure to the standards set by ASE;'\N.
77. In the transport, water and sectors, GQM Will 're;tructure rel-
evant agencies by enforcing atlearaud strict separation regulatory.au-
thorities and service providers and operators. For instance, suchrestructuring
can be achieved in the transport sector by separating regulators (civil aviation
authority or port authority) from serviceproviders/operators (airports and port
facilities). Public work services will be gradually privatized while building regula-
tory capacity and authority ofthe relevant departments..
78. Meanwhile, will emphasize improving the quality of the railroad sec-
tions that connect important economic centres. in the country, namely Yangon-
• Mandalay-Myitkyitnasectlon and the Bago-Mawlamyine section, and the up-
grading oflocomotives coaches. This emphasis on the core links services
will strengthen the previous strategy ofdeveloping railroads that connect various
parts of the country to the economic centres for the objective of regional.equity.
• . Greater attention will be given to regional connectivity and.bridging the gaps in
operations and compatibility in alignment with region-wide trausportstrategies.
Framework for Economic and SOCial Reforms
5.6. 'Iourism
81. Tourism is potentially one of Myanmar's most important Sectors, with tre-
mendous potential to contribute to greater business opportunities and balanc-
ingsocial and economic development if properly managed and developed. The
government'needs to support and move forward withconstructiveengagement
to integrate domestic and international tourism into national economic policy,
and develop linkages between tourism and other economic sectors to maximize
benefits. The government needs to assist in facilitating aspects of systematic tour"
ism development such as capacity building, product development management
of existing tourism assets, development of new destinations, relaxation of travel •
restrictions, development of tourism related infrastructure, marketing and pro-
motion, accreditation and regulatory issues.
Framework for Economic and Social Reforms
82. In parallel, the Ministry of Hotels and Tourism will also be cooperating and
consulting with tourism stakeholders to strengthen cooperation mechanismsfor
the sustainabilityof inclusive growth in Myanmar. GOM will also ensure that a
comprehensive tourism strategy is developed which is commensurate with the
cultural and customary practicesoflocalcommunities as wellas the environmen-
tal and social endowments of the country.In addition, it is also envisaged that the
tourism strategy will make full use of the human resources available within the
, country, and will enablevariouslevels of entrepreneurs and other stakeholders to
i benefit from tourism and integratewith the national economy.
!,
of
5.7. Education
I
I
I • 83. Education is a top government priority in view of the currently low level of
I provision of education and the importance of investment in education for inclu-
sivegrowth. The average length of schoolingis lowcompared to those of Cambo-
dia, Lao PDR and Vietnam; the quality of education at ill levels of the system is
• generally poor, and the ratio of governmentexpenditure on education to overall
GDP is amongst the lowest in the world;. " . ,
i
.f 84. To address theseissues the governmenthas alreadyincreased publicexpendi-
,i ture on education significantly and willincrease expenditure further in the com-
ing years both absolutely and as a proportion of the total'government budget. It
is also critical to put in place as soon as possiblean overarching education sector
reform policyandstrategythat focuses on expanding the quantity and quality
of education and that recognizes the complementary roles of government, pri-
vate sector and non-government sectorsin serviceprovision.At the same time as
strengthening regulatory policies to streamline various private andcommunity-
run educational programs, GOM is also moving ahead with the decentralization
of education management in line'with the requirements of the Constitution by
Integrating locally-designed'teaching curriculum as' well as non-formal pro-
grams In basic education system. This reform policyand strategy will focus on
the needtoexpand the system of bask education fromeleverrto twelve years;
Child-centredteachingmethodologies,upgrading teacher training and other CUr-
rlculumreforms necessary to enhancethe quality of basic education, on teacher
remuneration and broaderissues of education financing, establishing a rigorous
system for education quality assessment and performance; and further reforms
in the management ofbasic education including the importance of active engage-
ment in the process by the parents themselves, In addition, GOM will also pay
• attention to other supportive measures thatcan address high drop-out rates and
out-ofpocket cost burdens on families.
85. The government will also be undertaking crash training programs to address
• some of the most acute capacity constraints in the higher education system in-
cluding rapid improvementin English proficiencyamong teaching staff; it is sup-
porting efforts to restore the University of Yangon to its former glory together
with the formation of "Centers of Excellence" in technical, medical; economics
Framework for Economic and Social Reforms
and education training institutes; and greater cooperation with international uni-
versities as well as development partners in promoting exchanges, scholarships
and technological upgrades, The reform policy and strategy will also focus on
measures to enhance the quantity and upgrade the quality of higher education by
establishing independent bodies of quality assurance and accreditation systems,
management -reforrns in the university governance and faculty development
procedures, and on the procedures for establishing autonomous private higher
education institutions and universities. Last but not least, GOM will ensure that
human resource development strategies are set in line with market demands and
trends, the necessary adjustments will focus on an entire overhaul of technical
and vocational educational institutions, university entrance systems and devel-
opment of well-rounded generalists and managers through various professional
development programs. •
5;8,Health
86. Major improvements in the health status of the population are also crucial •
.to inclusive'growth. Health indicators are currently much below those of neigh-
bouring countries and GOM will double iis commitment in improving health
care services and increasing public financing in order to meet the health MDGs
as soon as possible. GOMrecognizes that provision of basic health services are
being, constrained by a lack of access to these services, the poor state of the in-
frastructure, low government expenditures on. the sector, a.shortage of health
personnel as well as weaknesses in training and gapsin theprovisionofbasic
materials and services.To address these problems the .government has already
begun increasing the level of government expenditure on health both absolutely
and as a proportion of the total government budget and will focus on a number
of innovative measures in health financing such as a voucher system for maternal
and child health care, special funds for destitute mothers, strengthening town-
ship-level health financing, and g'reater cooperation with development partners.
Particular attention will. be paid to allocatlng more resources to rural primary
health care, infectious disease controls and maternal and child health, in view of
the acute need to improvehealth indicators in all these areas. The
is also endeavoring to improve the provision of materials and service; to hospi-
tals and expand human resources in line,with the newly revised structure of the
health departments at community and primary health care levels. .
89. The strategies and for macro-economic reform and inclusive growth
already discussed will, if effectively implemented, do much to Increase. employ"
merit opportunities and strengthenthe education and health.statusofthe popula-
\
tion. The government will ensure that appropriate policies and .programs are in
place to address the needs of migrants, Migrationofthec;lomestkpopulllyon to,
neighboring countriesshouldbe dealt with flexibly and the government will con-
• sider the poverty.conflict.and other root-causes of such movements. Theg(jvern,
rnent will be developingmeasures to support migrants in terms of their basic hu-
manand labor rights in foreigncountries. facilitatetheir abilityto reconnect with
their familiesand effectively channel their remittances to their families and to.aid
the development of their communities.. The government also needs to consider
measures to control some of the current inward migration that is takingadvan-
tage ofporous borders, lax enforcement andother loopholes and that is causing
friction with local populations especially in some remote border,areas as well as
in regions with rich mineral and forest resources. In this regard, GpM will set up
an effecttvemonttonng systemsin the border areas in order ensure that rule of
Jaw will prevail in these regions.
•
Framework for Economic andSociai Reforms
6. Social, Environmental and Cultural Dimensions of
Development
6.1. Balanced Development
6.3. Environmental,Protection
95.ThegovernmentisCOrtlIuitted te;' protectlngMyanmars biodiversity,
ingnaturalforests, greening the 17mountain rangesin the dry zone, encouraging .
people to get involved'in environmental conservationand management, aridex- .
tractlngnatural resources sustainably, GbMalso attaches the highestimpOrtance' .
to its commitment to international cooperation on Climate change.whileadopt- ,
ingnewtechnologies for.blo-diesel and other Clean energyaswei! as'acttvely'edu-' ,
eatingthe publicabout sustafhable develoi>Jllent.GOM is currentlydevelopillg'a'·.
comprehensive Law on Environment, which wiltentail detailed developfu'ent<if '
environmental rules and regulations, mandatory compliance oHnfiroliffierltat··
impact assessments in development projects, upgrading and standardization of
environmental P'!;Q,\d.,- ,.
awareness campaigns. .... ". . .
;." .;.; . ';:' .. f ' .. ';;. . ; r:,_ -., ;.; ". -.
96. In the forestry sector, it is critical that timber and other forest. products are
extracted siIsUililably \\iithproper tt;chnology;therefore, GOMwill encourage'
better tise'ofnew teclmolQgy and foreigninvestment in processing value-added .
forest products for future exports, It will also promote participatory projec4 'of'
communityfocestryiIlpreviouslydeforested areaswhile strengthening laws and"
regulations in prohibiting encroachment ill. protected forest areas.Dnder appro- "
prlatesettings, GOM'will also cOnSideipioinotfug:,eco-tourlsm services in the' .
designated areas. . . . ., . ..
.
Framework for Economic and Social Reforms
national cultures and customary practices in educational institutions, It intends .
to develop cultural zones, preserve' world heritage sites and promote the unique
cultural as well as social and ecological qualities ofMyanmar as part of its tour- ,.
.ism development strategy. GOM also attaches. the highest importance, to the
preservation of traditional fine arts. dance and music; therefore, it will organize
special events to ·promote further integration of traditional values into current, .
efforts ofmodernizing the economy.
I
In-strengthening the social capital required.to.overcome.difficult aspects,of eco-. ,
nomic transition as well as any future-shocks or unforeseeable events.that mar.
arise from 'adverse economicconditions. , ..',;
',,',
7.1. National Harmony and Peace "
': ,,"j ,: . "-. :. . ,":' . . • .. '.!" : I
108. GOM has emphasized that industrial development will be undertaken along
withagriculniral.development.ina complimentary. manner. .It.isexpected. that
manufacturing and agro-processing industries, both labor and skill intensive .in-
dustries, will develop in this synergistic process. In the natural growth of these
clusters and value chains, Yangon and Mandalay-are expected to have the highest •
concentration of industrial and commercial centers, potentially serving as "twin
growth poles". linking upper and lower parts of the country while facilitating
smooth flows-of trade from land-locked parts of China and 'India to Indian
/42
Framework for Economic and Social Refomis
Ocean. However, concentrating all economic activities in one or two· primary
locations or cities would entail serious spatial and environmental consequences.
It would be more beneficial in the long-run to develop industrial centers through-
out the country, where both location advantage and regional as 'well as social
.!
considerations are favorable.
109. In accordance with the current pattern of growth and trade. Myanmar could
also foresee the emergence of the.following cities as secondary growth cent-
ers: Bassein-Sittwe-Kyaukphyu.. Mawlarnyaing-Dawci, .Naypyitaw-Pyinmana-
Taungngoo, Pyay-Magwe-Monywa, Myin Gyan-Meikhtila.and Taunggyi-Lash-
.io-Muse.Jn other words, Irrawaddy Valley. Sittang. Valley•.and Salween Valley,
Shan State and Southeast Corridor can become an industrial belt. Yangon and
, Ayeyawaddy Delta could serve as ideal locations for industries with higher tech-
nology because of the availability of manpower and transport. facilities-and also
easy access to other countries through air ports and sea ports. Two industrial
zones; one in. Kyaukphyu of westemRakhine state. and the other in Dawei of
•
.Southern Taninthayi region. can serve as gateways to the neighboring economies
as well as the rest of global markets. All those in Ayeyawaddy arid Sittang Valley
can become 'nor only agro-processing industrial centers but also centers for other
manufacturing activities because of their own special advantages. .
, .' . . . ' . .
a
1l1.GOM will' also develop spatially integrated, development pattern of set-
'tlements in Myanmar through. regional and urban development plans that will
'not only strike a balance between different purposes of land uses and existing
• 'stocks of socio-economic infrastructures and envirorunental resources, but also
'facilitate the balanced developmentthat is crucial for peace, stability and con-
solidation ofthe nation. Since 12% of Myanmar's population lives in two major
• cities-Yangon and Mandalay-contributing 30% of the GNP, and this share is
expected to rise rapidly in the future, it is imperative that GOM will draw up
urban development strategies that will reinforce linkages between urban cent-
ers and rural hinterland facilitating rural development and poverty alleviation
Framework, for and Social, Reforms
of the, nation as a whole. GOM is presently cooperating with UNHABITAT and
other international organizations, in developing necessary laws and regulatory
framework as well as strengthening institutional capacities for sustainable devel-
opment ofurban and regional development projects. Ail analysis on potentials of
different urban centers that will serve as crucial growth engines for the nation's
development contributing towards poverty alleviation has also been undertaken.
However, it should be noted that the above projections are only indicative and
Myanmar will have to constantly review connectivity and spatial strategies in the
light of changing regional economic situations as well as domestic growth trends.
The plan is also meant-only for the short and medium term in the period of the
next 20 years; across a loriger time frame, more regional or state centers could
" well be developed as trade and industrial centers.
, ;
Improving.Governance ,'
8.l.Publid\dministrative .Reforms
11:3. From the very Inception ofthe new U Theiri Sein ern-
phasized the importance of "good governance and dean'government" Hisdirec-
tives on a new motto of the government include the streamlining of existing in-
stitutions.creation of new organizations, adoption management
concepts, development of critical success factors andkey performance indicators,
and an evaluation framework, Drawing on relevant global experiences, G0M:
recognizes the capacity weaknesses within the' public sector, and plans to develop
an overall strategy for public administrative reforms and civilservice reforms
that increases transparency, accountability and meritocracy within civil service.
•
The reforms must be followed up with subsequent capacity building programs
for the Civil service. Such capacity building programs should .aim to improve the
quality ofpublic services, the quality of the Civil service and the degree of its in-
Framework for Economic and SOCial Reforms'
dependence from politicalpressures,the quality ofpolicyformulationand imple-
mentation; and the credibility of the government's commitment to such policies),
'0".
,8.2. Information access and,transparency
114. GOM will step up,investment Instrengthening the overall statistical and
informationbase and move as quickly as possible to define, legalize and enforce'
the right to information and to improvecitizens'access to information, In August
2012, GOM abolished the Infamous "law on press scrutiny"; and allowed free-
domof the private media to inform the public; at the same timedeveloping an
institutionalenvironment for free flow and access to information that empowers
civil society. IiJ. Septeniber, the Office of thePresident also opened a public aCC
cess portal for citizens'tosubmit opinions andcornplaintsdlrect to the President.
'Ihroughoutthe
: ,.
government
.:.' .
mlnistries, GOMhas'also
.,. . . . .-, . - .' . .
(-'
accelerated
.."
Its
..' .", ':,'
,:'
develop-
'.' .. .'
,
• 116. GOM has continued. to work closely with Parliamentin the implementation
of the reform agenda, including discussion and vettingof reform strategies in line
with experience from other countries. GOM intends to open up the process of
review oflegislation to allow for scrutiny and feedback from all interested stake-
Framework for gconomic and Social Reforms
holders prior to parliamentary debate, approval and subsequent oversight. GOM;
in collaboration with the parliament, will improve citizens' access to law, and to
increase public confidence in and abide by the existing laws, and in particular the
quality of contract enforcement, property rights, the police, and the courts, as
well as the likelihood of crime and violence. It will also pay attention to.address
the incidence of Violent or non-violent crime, lack of effectiveness and predict- .
ability ofthe judiciary, and questionable enforceability of contracts; thus, the cer- .
tainty of doing business will be increased, thereby resulting in increased private
investment and economic productivity. It can help both domestic. and foreign
firms to avoid more costly private means ofcontract enforcement and protection,
andalsostrengthen the credibility of the state, making implementation of public
policy effe'ctive:GOM will also undertake legal and judicial reforms to improve
th independence and effectiveness ofthe judiclatyto improve the rule of'lilw as •
I
I
f
as prosecution, enforcementand legislativeoversight. .,'., ,..'
118,. Having been isolated from most of the major economic the world'
and subjected to severe economic and political sanctions, Myanmar needs to ac-
tively and vigorously reposition its role in the international community. Central
to this effort is a strategic thrust to take full advantage of its centralized location'
between two of the world's largest economies, India and China, and its ability to
provide strategic gateways for Southwest China to the Indian Ocean as well as for •
India's "Look East" policy.
119. In this context, the government attaches the highest priority to working with
Framework for Economic,and SOcial Reforms
other ASEANcountries to achieve an integrated ABC by2015. An ASEAN score-
card has been prepared which shows that there has been important progress in
all these areas across all ASEAN countries (see Chapter 2, para 28), But much
work still remains to be done across all of the pillars between now and 2015,
including ensuring that alreadysigned- ASEANcWj,de agreementssare'Integratell
into national laws and that, there are no further delays in theImplementation.of
speclficinitlattves. GOM is committed to speeding up these processes :ahe;td of
MYantrlar:scb*Inanship ,ofASEAN.in 2011 Indeed
reformstrategy and the measures outlined earller.ln this frameworkwill all be.of
great help iri ensuringthat ¥Yanmar tsable to
the ABC timeframe.. Nonetheless, it.Is dear that intensive work will be required
• ,¥erent and To faypltate this,
and ensure that. It.is completed ontime,
try of Foreign Affairs with the overall coordination of the work required to meet
the ABC targets and objectives.The government recognizes ahdappredates tHe
I .• flexibility granted to Myanmar anda number of other lower income ASEAN
l countries with respect to the timetable for implementation of some of the agreed
!
measures and believes that this flexibilitycombined with the efforts under the Ini-
i tiativefor ASEAN integration to provide specific support to Myarimar and other
lower income ASEAN countries will further enhance the benefits to Myanmar
. from theformationofthe ABC. . .
lZ0. GOMalso intends to step up its engagement and cooperation with neigh-
boring countries through other regional cooperation mechanisms as well as
bilaterally. Through iWi1l\.embership in the Greater Mekong Subregion (GMS)
Economic Cooperation Program, for example, the government will ensure that
Myanmar is fullyconnected to the various GMS transport corridors' and will
'Workwithother GMS members to make these corridors economically vibrant.
It will also enhance its cooperation with other GMS members in other sectors
including energy, telecommunications, tourism, agriculture, environment and
human development. The government will also negotiate with neighboring coun-
tries for joint use of non-renewable resources for the long-term sustainabilityof
mutualbenefits and good relations.
and human resource' base and in strengthening its overall reform and develop-
ment program.
....
J, .
"-" ...
'.
-aa ", . .... .....
,.,
..
,... ,J ,.
....
po.t>kdtbl 19.9
". ...
12.9 :2$.1
U.6 .....
'M
es, ...., .0.1.
""
Q.6' Q;9'
",: .: .-""""
•
Framework for Economic and Scicial Reforms
124.' With respect to the FES!l:s quick Wins; some require no additional budget
resources (e.g. allowing commercialbanksto lend for more than one year or sup-
porting use ofmoveable assets ascollateral) and some mayeven reduce budget-
aryexpendltures (e.g, all the actions related to simplification of procedures arid
regulations). The budgetary implications of many other quickwins are also small
, (e.g. all'the actions related to new laws and preparation of various strategies and
r plans);but the responsible ministries and agencies will need to allocate sufficient
\,
resources in a timely manner to eusure high quality strategic and policy work.
I Pinally, some quick wins will require more substantialbudgetary resources - for
exampleincreasingextensionand other agriculturalservices, introducing ern- an
ploymentguarantee scheme, Improvingpower provisionarid public transport ill
Yangon,eXpailding sthool grants andotherprograms in healthandeducatton,
The responsible'minlstrleswill neMto cost these activities asa matter of urgency
in order to ensure that the appropdatilevel of budget resources Will.
to begin implementation of theseInltlatives as soon they 'receive an'(jffidal
go-ahead.' •.... . ' .'. . . " i· .•
as , .'
125. Beyond the qulckwins, many of the other FESR prioritlesand actions also
relate to the preparationof plans,strategies, introduction 'ofnew laws and'regtic
lationsand meeting Intemationaland other obligations. Theresource require-
ments for such actions are small. A range of other actions' related to capacity
development also requiresrelatively smalladditional resources but making these
resources available quicklywill be essentialto avoid future capacitybottlenecks.
:btherprioritY' actions, p\uiicUIarly_ inipfovrngtranspoitatioH'and social infra-
structure.wtll require major allocations of budgetary resources and GOMmast
give carefulthought tothe priorities and rate of investment in each of these criti-
ell! areas. 'Further down the road,'once GOM hascompleted new strategies and
plans in important areas such as agriculture, education;health, tourism; a range
• of infrastructure sectors, peace building, urban arid regional development, arid
decentralization, implementation of thesenewstrategles and plans will require
significant budget resources.both from Continuing expenditurereallocation and
• accelerated revenuegrowth.
49
1
Framework for Economic and Social Reforms
Resource Mobilization
126. In the short-term, rising revenues from gas projects coming on stream (see
Table 10.3) will be the main source of finance for the additional expenditures
necessary to implement the,F'ESR. But inthe mediumterm, GOMwill,endeavor
to Increasetaxrevenuesthrough bothtax policy and tax administrationreforms,
and thereby reduce dependence on natural resource revenues.
' ....
2014/15
.....
201$/16
.....
2016/17 2017/18 .
.-
P,-,.
,
I
>;777 .4736 .5,1« ....'
''O!'
9.9$2 11,360
..,...
12,966-
''O!'
).4,767
''O!'
16.822
.. " • 10 . . 12 1,9$2. .2.672 I 2,708 2;7'58.._
T!l'i": . . 1,318 1,610. . 1,888. ..'2.177 .' 3,026, " ....J'!,?' ,":; ,
,:\.¥OO 3rt 'S ;,3,.53." .. ,1
"'-" 0.5 0.3 0,.2. 93.6,
, "
'S3f 223.8
' l. ".' I,
!
Notes: Revenue includes
. all revenuereceipts pf union govemrnentand
. . SEEs;
. Source:
. IMF
_.
" . " , . '
! 2013., ,,'
I,
,
127. GOM Will Implement tax policy and adrnlnistration reforms gradually
in a coordinated manner, based on refotTIi strategiesand with the broad
aims to further simplify rates W'Me brpadenlD.gthe tax base, promoting envii
ronmentalconservatton, movingtoward greater reliance onindirect taxesand
self-assessment in direct taxation, arid Improving the capacityofthe tax
istration, In tax administration, GOM willestabltsh a large taxpayer office with,
to
theaim becomeoperatlonal in September 201.3. On taxpolicy, GOM Iscon-
sldering reforming the taxation of special conswnption goods (such as alcohol,
tobacco, luxuryitems, and polluting goods This would lay the foundationfor an
eventualmove to value.added tax, which would encompassequahzing commer-
cial tax rates for.allgoods. GOMwill also streamline.tax incentivesfor investment
in theIncome
. '. : . , . . '.
tax iaw."
.."..
,. ' "
. '".'
'J' .
127. The. essence of partnership is mutual accountability and this should be the
case in partnerships organized around FESR's development objectives. Private
sector partners agree to operate within .agreed regulatory frameworks, civil soc
ciety accepts an environment of public accountability and donors agree to-work
within the public resource framework channeling disbursements, through the
budget and not creating parallel implementation units or systems.·In return the
government commits to: implementing FESR In a transparent and: accountable
manner with a regular monitoring ofresults, ., '.
.,
129. The Plannihg Commission with the support ofthe secretariat will focus on
three dimensions of the implementation of FESR. First itwill monitor the
mentation ofthe immediate actions and measures outlined in FESR as well theas
progress being made on the updating and strengthening of reform strategies that
[52
Framework for Economic and Social Reforms
will enable additional measures and actions to be taken, Second, itwill monitor
progress with respectto public expenditure management and financing includ-
ing the expected. increase in overall government expenditures, the agreed shifts
in government expenditures towards high priority programs, and changes in the
financing of government expenditures (including the balance between financlng
from domestic revenue growth and financing from.international sources). Fjnally
the Commission and the secretariat will focus on.what all of this.means in terms
key indicator; ofeconomic and Periodic reports
WP beprepared onprogressbelng madeandon any changes tba,t may needed
in '.-
the measures
. '
and. other
. .work
" . outlined
. iilFESR.
.(...
.....
. '. . , " " .
131.FESR fully recognizes both the' urgency arid historlcscaleof reforms re-
quired in Myanmar, involving the development of market mechanisms, changes
iri economic 'deCision-making arid the' correction of policy distortions inherited
fromthe previous period. Given the depth arid breadth of the required transfor-
mation,' it is impossible for the GaM to implement all the programs of reform
in<?ne government term, so FESR proposes a phased Implementation strategy.
Phase 1: Macroeconomic.reforms
•
. '. GaM fully recognizes the need for fiscal and monetary stabilization as
the foundation forundertaking other reforms.
• Trade reforms should be closely linked to fiscal and monetary stabiliza-
tion, and greater speed Ofiinport liberalization should be closely related
to foreign exchange management reforms.
• The most' urgent need remains to tackle the public finances; GaM will
. undertake concrete measures to reduce the budget deficit to a level
Framework for Economic and Social Reforms
"i'"
'. "Given
stipends/conditional cash transt;ers.".
ofagrlculturalcontribution toGDP arid ern-
ployment iii the 2billliry,agiieU1hiralgroWthiscritiq]'forinciusive
"
,
',;', that food security is achieved ihroughbu"t
·J.:I,;··
3:, Sectoral and
..
institutionalreforins
. . . . .
54
1
Frameworkfor SOCiabReforms
C;",;"': .. :.;(" ".! :".:)-\ :/";/',:r-'." I,' - l. 'f" u ol ,'I I' ,
o a
that the ciiediliili'tyof pubhclp'olicy. plays a iliri(thibVilig'susfilifie'd
milnilfHium;ln the bvefilllJre[oYi!isH¥!ieneverpossiDle;'GOM wmJalsd'affefupt>to
UllrleFcike pro-
grlUtis ifogetlter Wfthca' feW'seCfor 'fef6rm 'strategies ,generate qUiek wins; .
which can signal i the' toreforrri and- encourage' tHe
overall reformprocess.
• • 2 Mostcountries beginning major processes of reform andtransition have foundit necessary toprepare
such frameworks though they may give them very different titles, some emphasizing more the reform
nature ofthe document andothers emphasizing moretheobjectives of thedocument in terms ofgrowth
and poverty reduction; in practice the frameworks focus on how the policy reforms and other programs
to be undertaken will impact-on both growth and poverty reduction .
Fram'ework fur EconomiC1and SOdal'Ref0l'ms
Following the approval of FESR, more detailed workon sectoral'and cross-
sectoral' istrategies;'pblicies, plans and-programs-will.also.be ,reqUITed. Much of
this work will.be led by-the'ministriesdirectly.responsibletand. some or this work
is already underway, for example the work being led by the MiniSt:ry>'of Finance
.on a public expenditure and financial accountability assessment and public ex-
penditure review and the' 'work'beilig' Idfby the Mlliistr}" ali
more
r1l1 into the
i,;,i, "i ,j', ,I, <j'hl 'i;';' , ",'i' '
, ," sectoral,
policies, plans and programs (including model village development) is expected
B.ll,tw;ork willJ<io1!\4lu.e ,jntO! 2.0J4,Mg,,\J,l%ml,and
I,
,f
,l\"sw;Q.l1g;;lmse (<:in gft
1l1,lIt:CNG.QP.} wiJl
,Rye
yell;' plm, mil ,t,ef)e9t$e.fu\l,jntegI'atioIltOWle\goX.eli1'W111!1t§,pr,o;l,4er l1P.lt<;y;\@d
bmadllt,:re!oJ:W;tge,gda with programs-and wW, •
9.\ldget: ..,'" (,,,:, ..
,",>:;,..." .,'
.,
•
< "'.
56
1
_. "on •
.'l' .....• __ ,_ ..,_"", ....... =---.-. .. __ .-., ,. _" ... .., ..•. -,--
• '"
VI
•A1'PEND1X 2:
. r: , '.Tf!; ;";
". ..·" : ",r- -: '!";,
i??
· Chair .
• 'lmpJ;ove inspectionand quality-assurance services ofUO;aIth- FDA
:1,.. EstabIish.lfe\v'conswner protection agency
3.!dainla1J;lll1On<ta<y stability '. AJ/J)fJllotiJmifri4I banks to lindfor'mOre thlZll OIUyear 2014 of ABC
0'
!,. Eiiabl.1fJdrtgti#}iiimzie1llll1 m<Iit smieU togetstattd ., ; - 3
,• ... ".). ;".,' '"
:.. ·SeFiiim6cib'ili rates
1.2015 MirilslIy "f'Fifuince and
, • 'PiefJarelibancja J sector master pian and implement . ,.
'.T." ".:,,;!.,i.-l.J'-<' . " '1eccimmendiitions'''''' '," .. ,.! ',; '. • ,,, •
4. 'Refonn publicfin2ncia1 and '. EtrM. SiJIIIItipiiblkjillt1J«iol6i4ugt1lltllt . 2Oj.3SMP Ministty ofJlinance and SMP
experiditure iilaxulgcinerit ':. 'Silliplifr& "P '!fLzrt! TaxjJ<UtrOffia Revenue
I. Milhittmbili/gift!DaimtitJJpiiblk!J IJlkZiIabl. 'I MinistIy of Natioaal
: : .Planning and Economic
•.. fin2ilcialaCcOUhtabililj
Develocmeat
-
...• ..•..
5. Reform and, further Prop"" fiep I!J fkjlrotpOratizaJion andprivatizationplan 2013 .' Public Service
state enterprises . • Set- hard1b>idget''cO!lstriUnts on the' existing state-owned Planning and Economic Peformance
-to enterprises':"-";:"';' ......, :'>" '.','- 2013 , Deviolc'ipment . Appraisal Task
'.' . . "iltOFR - Buagft Foree(pSPA)
i "'" atitho-ritv'; (1, ','\;Y,':,'":i.,,,, " .-" '.\'.. .,<..., .;' ;';",' .2014 ·President Office5 -n
OJ
6. se!'tor .' I'r<JklrepliJcidii;'santJgmlkkil$i,fr new FIL 2013 Investment AEC-2015 3
develllpment and 1;'01 ,. 2013 c;,:;".m8sio-\, ,"" . . ro
::;.
'.' Minimi'?!#imfamon (1)Jt;,frprilJalt se<lor .
''''Transf0ttn llIVesrmentcommissioti into independent PresidentOffice 3;5 PSPA
,"- qoa,Id· .:. if,":" ';",':'" ';'"
....... •
¥!.nJ.sttyofWtio!Ul .,' , . '"Cl'
?
'-. G<,!ndljct inveS)1nent climate assessment and implement
recommendations " • - DICA 8'
'. Revise 'existing laws-on special economic zones'
; 1.$ ,. ,..
'!,
'"3o
,., Me!ge'FlLa'ndFcitiZetjsinvestment'law, sirigleinvestment o·
•2015 4EG, ; ...... :',
III
-'; :':,'".'
: ;"",,"
MNPE'El-'DlGA, ," '"
C.
&:1
o' 'J
• " "
o
_
. .._- -",,, ,,,.,.,. _ - .. _--.,. ... ,_.•. c' _ _ . . ., . . _ . " .. , , , " • .'",,",,,,,J.,--".' ..
,,> -c
\" ""- ,
2. Promote efficient ! !j:ncourag¢,indust;riaJization that.geuerates job MWstIy ofIndustIy MDG-Goal
.. , ,"
manufacturing and 5MB OPPO)'tunities and technological development 1: Eradicatre
development • . technical.schools 2015 Republic of the Union of extreme"
M" .'''' Federation of povertyand
,;;- .' " .'
• pmhlP/.eSMFJ.s i1IId ddbpli#g SME law;
2013 Ciiicineree hunger
. " 7J!'1ovz(tli'aJniin. ·/xittt.Il«kr,imprIlIJingilaiss.1rJ ",<Pt, and --' . . ..
#Mil#.hin·;··.'::- ;SME·.rJ,!Jhnrl &dtltl- '.
.3. Responsibly develop . • Impklt!.#t Extracti",·rndllstry Tmn.rpar.nfJ rnitiali", qmce 3 MDG-Goal
._ .. , extractive sectors ..' NationalEncrgy 7: Ensure
ii . ReViSe 10galaiid'lisca1 frameworks for awardof
i:oncess16riS comed: international standards . 2014 ManagemeerCommittee - environmental: {
• Streamline.natural resourcerevenueand reviewcontracts
• respectiVe regillitory agencies.' "., '''' .
2015 Minisirle,'6f'Eriergy, .
Environment
sustainability
0"" '(":." .'
s
• AdopfMinlhg L!W'aooImprove employment and 2014 I":
of Mines.,-,/. ,
. , ",:' , brofitabilltv ofsmallscaleand artisanal mlninz
§
;-' ..
4. Invest in transport and • riiirodsi«:""1'hyit,ntl/Iaranlet "h.m.jorp"blic /PO'*-' 2014 . MinistIy of Public ABC
.' J"; ..
infrastructure for inclusive
growth
• Pitpdf(a/lililfljlkmentl11asf",jlimjor.!edridtJ 2014 Ministry ofElectriclty
I
MDG-Goal
. ':, '. , .
Q
•, P/lNnpkiii clei:r1ega1fram_rkforp"blkprivateparmmhipsfor III
., , d...liJpmeitf and fntritagem<nt oj injrastrudll" ' . '. . ... . : ,.;:,."" .,. 1 ::J
0..
• mea-es to improve pow.r
provision
.2014 MinistIy of lW1
• Eithdii<e jliblicltrahJjiorliitYangok" 2014 Ttaniipcirt: s : ,... ,. '"
• Invest in d<!v<ilCipmentand upgriidirigofroad rg
"
Ya.il'gbnRegiori"
infrOslrUetUreaccotdirig to prioritizi:dpJan GCiV'ernineiit·· :' ... 0'
• In1pfuVequauti ofiiiiiwaysystcin .' ".: {
Ministry of Transport ;,'" 3<n'
': " Iii transport,water and 201S ";:('.;- .
.' '. .. ',<,J :,' ' : . ' . < ................ " .." :;;.!' i -! rs , l. -: '.:- . .
I./;j' -. " ...
;",z,w.iment'aiultklielAAme1Jt iGDvern!n.itll>h.
6. Develop sustainable tourism • $imPlifJ iJi,r4 rtqtiire'!I}nlstmdtk1le{Qp specf,.{f!iHrimI
."- .. \..,-,1-' " ",,' .. . . . . , .'
2013 SEA Miilistry of'Hotels and ABC
• eompreherisive tourism strategy Game T"ill:lsm" "
aad 2014 MinWtri"s"ofHome',;<" ,
",' '. iwEiiriable
. . ,."'"
eeo-tourismschemes
":".. .
' '"
ASEAN , '" ' ,!!I?-cion,
" "
Cluir Regional l1:avemments
7. Expand quantity and quality • EXpifnJ'ichilolff4nlspro!Tdm tmd inlrodH", slmknl slip",rls 2013 Miilislry of Education MDG-Goal
afeducatian ;, pi-Eli< riii.dHdztiiJn 2013 MOFR 2: Achieve
2014 :.'5(." '-I "".'1:'
universal
-n
,it 'r}/!ifeHakiliiiJhir'dtnitigpiOg;izhii 'tDizddrost =tk @
iiJnSfiI#iIlj 'filiil ffriinitig's<hildls
' MinistiicS' of Science and primaty 3
2015 T&hn61Ogy'AgricullUre education
• Ri:s'tore'1JiiivetSltj'ofYangon arid'centtes of excellence :EiVestdcl1;' Health and '
,
• Cdmplete'ilridiirip1a:iJ.eht edu&'tian sector reform policy ".
2014 lliduilttji " H" 'I l3'
and's!l:ate;;v·, ,'. ' '", -c
8. hnprove hea1lh services far all • ltilrrJiiH",iniwV<lli...,nttmlnS inhet1lthjil/4l/dng tmd 4110<41< mort 2013 MDG - Goals
IIIptiliri!j imtu' ' ',', ' 4,5,6: ::l
o
• Updateover.illhealthSlcltegy,and:acecess 10 health 2014 MOFit
I.'.: '. .." .
"
IDiproving , 3
2014 health care cl"
• Sttemztben'Nation2I HealthLaw OJ
::l
9, Promote employment and • migrants overseas 2013 Ministry of Labour, Bilateral and 0.
address needs of migrants. •
• dia$f>ora's'contiibution 10 : r -: ..
Social
regional
implications [
theeconomy,,· """"
• Conduct ooouIa1ion census 0'
WblN 3V>
1. Ensure balanced .development • Introduce stricter.requirements far assessments of major 20141 Office
. )'.':'" of; 'Presic\ent
, .. . ' ,"
PSPA
. eoieces.end pro,
2, Protect workers' right> and • DeveIop.pproprialeminimumwage policy 2015 MinIs of Labour, ' ILO
',.:' .
enhancesocial protection • EstablisbJ!igh"level National Committeefa, Coordination 2014 Social
:), -,.- P<8leC1ion.andsttengthen " Sectititr "
, {', ' "!y .. .: < f')r ,.,.. ,.
",; .
, disaste<.preparedness and 2015 Ministry of Social Welfu:e
.. .. '\ .:
•r evenrion'nlan-
-- '"
..:..... _ ...._. . __ _ .. .. .. .-.. ............ ...,,....'...
. .. , __ )
..,J "
,
...
0\
3. Protect the environment • :6Oveibp rAw 00 Environment 2013. Ministry of MDG - Goal
. or forestty, iQ(:luding use En'Viionmental . 8: Global
ofnew technolozies and Sutloort for communitv fores 2015 Ci>n8erVation lind Forestry partnership
4. Promote Myanmar's diverse Develop f,1la preserveworld Ileritage sites 2014 M\riistty .<ifCulture .' I UNESCO
culture and protect freedomof •
reJ1eioti :'.t:. > ....•.-
CEDAW @l
• Hos;
It- l . • _. ,.
. • . '. ". ..
":
in. 2013. ' .'. ! ; 3
.Mainstream gender-and eradicate trafffi, •.
",.-
8.
9!.
1. Acbieve ABC • E!lSUIe ate met 2014 Ministry of N ational ASEAN 0'
, [ t"·'. , all).ECtequjJ;ements
,1;?".. .;' '.. ,.,.' . .,'
'. '.' ..• _
by' 2015
. ": .. " 3
Planning and Economic
Of'
l)Cvclop1D'6lt· ''','. .";< ....;
·l..·" .',
'" ofBoInmerce. !". '
c'
. "'-"'; ..
,
, ,-;-",
m
strengthening reform and development program and MWstty ofNational
buikling infrastructure andhuman resource base Planning andEconomic
Develonment
1. Enhance effectiveness and • Issue new guidelines on preparation oflegislation to 2013 I Office oCPresident 3, 4 -n
@
efficiency ofpartnership between enhance quality and stakeholder input 3
executive branch and Parliament
2, Strengthen government . • Government to consult actively with business and civil 2013 I Office oCPresident3, 4,5, ;<-
pattnership with business society during implementation of FESR 6 0'
communitv and civil sod
3, Strengthen Partnership with 2013 I Office oCPresident3, 4,5 I Busan, MDG
8'
• Implement Naypyitaw Accord 15
donor commnnh 3
o·
0>
::J
Note: a.
L Tune1ine: Deadlines (e,g" ASEANEconomic Integration), legal time frame (e.g, Presidential decrees), policy target (e,g., govt:tnment targets)
2. Focal and supporting agencies - Focal agency (lead agency) andsupporting agencies (include working groups)
S.e!.
3. International implications - with IFIs (eg. SMP), ASEAN (AEC schedules), donors (working groups), andother special obligations @'
\ . 0'
...
...
-;
...t5 .
N
_--_..
..