policy considerations before bank privatization – country experience
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Policy Considerations before Bank Privatization – Country Experience
Dr. Ishrat Husain
Governor
State Bank of Pakistan
Presentation made at the World Bank, International Monetary Fund and Brookings Institution Conference on
“The Role of State-Owned Financial Institutions: Policy and Practice” held at Washington D.C., on April 27, 2004.
Outline• Background• Rationale• Modalities• Pre-Privatization Activities• Case Studies
Privatization of Banking Sector in Pakistan
Background
Financial sector significantly altered in early 1970s with
nationalization of domestic banks under the Banks
Nationalization Act 1974.
The Pakistan Banking Council was set up to act as
holding company of nationalized commercial banks and
to exercise supervisory control over them.
Privatization of Banking Sector in Pakistan
By end of 1980s, the pre dominance of public sector in
banking and non bank financial institutions together with
instruments of direct monetary control was contributing
to financial repression, financial sector inefficiency,
crowding out of private sector and deteriorating quality of
assets.
SBP’s role as a central bank had been considerably
weakened due to the presence of Pakistan Banking
Council. Duplication of supervisory role was diluting
SBP’s enforcement of its regulations over nationalized
commercial banks
Pre-privatization structure of Banking Sector (1990)
Banks No. Assets Deposits Equity
Amount
(Rs. Billions)
Share
(%)
Amount
(Rs. Billions)
Share
(%)
Amount
Rs. Billions)
Share
(%)
State-owned
7 392.3 92.15 329.7 93 14.9 85.6
Private - - - - - -
Foreign 17 33.4 7.84 24.9 7 2.5 14.4
Total 24 425.6 100 354.6 100 17.4 100
Source: Financial Sector Assessment 1990-2000, State Bank of Pakistan
Privatization of Banking Sector in Pakistan
At the onset of the 90s, the Banking Sector in Pakistan was dominated by the public sector banks which were characterized by
• High Intermediation Costs• Over-staffing and Over-branching• Huge portfolio of Non performing Loans• Poor Customer Services• Undercapitalized• Poorly Managed / Narrow Product Range• Averse to Lending to SMEs/Housing & Other Segments• Undue Interference in Lending, Loan Recovery & Personnel
Rationale for Privatization in Pakistan Privatization process initiated in the early 1990s as part of
economic reforms programme
Establishment of Privatization Commission in 1991 for
disposing state owned enterprisesMission statement of Privatization Commission
“Privatization is envisaged to foster competition, ensuring
greater capital investment, competitiveness and
modernisation, resulting in enhancement of employment
and provision of improved quality of products and services
to the consumers and reduction in the fiscal burden”.
Privatization Policy announced in 1998
Rationale for Privatization in Pakistan
1. Reduction in fiscal deficitFiscal deficit reached a high of 8.5 percent of GDP in 1987-88. Loss making making public sector enterprises were a burden on the national exchequer.
2. Increase in the efficiency levelsEfficiency levels of public sector enterprises were low. Production costs of public enterprises were high as a result of political interference.
3. To foster competitionState owned units when sold to different parties would result in healthy competition in different sectors of the economy.
Rationale for Privatization in Pakistan
4. Broad basing of equity capital
Privatization would result in strengthening and deepening of capital market when some percentage of shares of public enterprises are sold to the public through stock exchange.
5. Releasing resources for physical and social infrastructure
More funds available for development projects. Privatization of loss making enterprises would give govt. more fiscal space
Modes of Privatization adopted in Pakistan
The Privatization Policy of 1998 outlined the following modes of privatization:• Total disinvestment through competitive bidding• Partial disinvestment with management control • Partial disinvestment without management
control • Sales/ Lease of assets and property
The Privatization Process
1. Identification
2. Hiring of a Financial Advisor
3. Due Diligence
4. Enacting Regulatory and Sectoral Reforms
5. Valuation of Property
6. Pre-Bid and Bid Process
7. Post-Bid Matters
Steps taken for preparing banks for privatization
1. Amendment in Banks (Nationalization) Act 1974 in 1990.
2. 11,101 workers out of 39,277 were relieved from HBL, NBP and UBL.
3. 1646 branches of NCBs allowed to be closed.4. Rs. 46.6 billion injected as equity to recapitalize the
banks.5. NPLs worth Rs. 47.4 billion transferred to CIRC1 at
discount for disposal.6. Tax refund bonds issued to NCBs amounting to Rs.
6.5 billion issued1 Corporate and Industrial Restructuring Corporation established in 2000 for acquisition of NPLs.
Steps taken for preparing banks for privatization
7. Professional management installed in HBL, NBP and UBL.
8. Boards of Directors reconstituted with private sector individuals of integrity and eminence.
9. Promulgation of Privatization Ordinance in 200010. Introduction of incentive scheme for loan defaulters11. Committee for Revival of Sick Units
Role of State Bank in Privatization
1. Analysis of issues, design of restructuring plan of nationalized commercial banks (NCBs), monitoring and implementation follow up.
2. Voluntary Separation Schemes for excess labor designed and implemented with the financial assistance of the World Bank.
3. Approval of the Chief Executives and Boards of Directors of newly privatized banks according to the ‘Fit and Proper’ test
Role of State Bank in Privatization
4. Meaningful input on documentation viz-a-viz Advertisement, Statement of Qualification (SOQ) and Agreement for sale of shares and transfer of management.
5. Screening and evaluation of the Strategic Investors for clearance of purchase of 5% or more shares of NCBs in order to ensure quality and competence of buyer.
6. Resolution of the issues raised by the strategic investors during the process of privatization.
7. Evaluation of bids
Banks privatized so far
1. Muslim Commercial Bank Limited
26 % shares were sold to the National Group in April 1991 for Rs. 838.8 million. Another 25 % shares were offered for subscription to the public in February 1992. Remaining shares have been divested in January, 2001, November, 2001 and October, 2002 for proceeds of Rs.1,287.2 million.
2. Allied Bank of Pakistan Limited
26 % shares sold to Allied Management Group (AMG) – representing employees of ABL, in 1991. Another 25 % sold in 1993, resulting in transfer of ownership from government to AMG.
3. Bankers Equity Limited
In June 1996, 51 % shares were sold to LTV Consortium for Rs. 618.73 million
Banks privatized so far
4. Bank Alfalah LimitedHighest bid of Rs. 1.64 billion received for sale of 70 % shares of Habib Credit & Exchange Bank Limited (presently Bank Alfalah) in June 1997. 2% shares were meant for the employees 28% shares sold in block for Rs.1,226.0 million. The shares not taken up by the employees were also sold. Sale Purchase Agreement was signed on 13th December, 2002
5. United Bank Limited
51% shares sold in October, 2002. Payment of US$ 176,907,858 and Rs.1,852,500,000 received
6. Habib Bank Limited
Highest bid of Rs.22.409 billion received from Aga Khan Fund for Economic Development, for sale of 51% shares on 29th December, 2003. Transfer to the new owners took place on February 26, 2004.
Banks privatized so far
7. National Bank of Pakistan
23.2% shares have been divested through IPO/POs in November, 2001, February, 2002 (Rs.373.0 million) November, 2002 (Rs.782.0 million), November, 2003 (Rs.604.0 million).
Privatization of Banking Sector in Pakistan
Units privatized to date
(Rupees in Billion) 1991 to Jun
2002 Jul 2002 to Jun 2003
Jul 2003 to Jan15, 2004
To Date
Sector
No.
Amount
No.
Amount
No.
Amount
No.
Amount
Banking 4 5.6 2 12.9 1 22.4 7 41.0
US $ 710 million
Source: Privatisation Commission
Post-privatization Structure of Banking Sector (March 2004)
Banks No. Assets Deposits EquityAmount
(Rs. Billions)
Share
(%)
Amount
(Rs. Billions)
Share
(%)
Amount
(Rs. Billions)
Share
(%)
State-owned1
4 518.8 18.6 379.3 20.1 22.5 17.2
Private 20 1840.3 66.0 1292.3 68.5 92.8 70.9
Foreign 13 278.4 10.0 198.0 10.5 26.7 20.4
Specialized banks2
3 149.8 5.4 16.1 0.9 -11.1 -8.5
Total 40 2787.2 100 1885.6 100 130.9 100
Source: Banking Supervision Department, State Bank of Pakistan
1 Three small new banks were set up in the public sector during the 90s. These included the First Women Bank, set up
to provide credit to women entrepreneurs; and two provincial banks; the Bank of Punjab and the Bank of Khyber.
2 These include: Zari Tarqiati Bank Ltd, Industrial Development Bank of Pakistan and Punjab Provincial Co- operative
Bank Limited
Privatization of Banking Sector in Pakistan
Case Studies
1. Muslim Commercial Bank
2. Allied Bank Limited
Muslim Commercial Bank
First bank in the public sector to be privatized
On 6th April 1991, 26 % shares of MCB were sold to National Group at a price of Rs. 56 per share, for a total amount of Rs. 2.4 billion.
As part of the Sale Agreement, a further 25 % of shares were offered for subscription to the public on 19th February 1992.
Further shares were sold in January, 2001, November, 2001 and October, 2002 for proceeds of Rs.1.3 billion.
Upon completion of disinvestments of 51 % shares, the application of Banks Nationalization Act 1974 ceased on MCB
Muslim Commercial Bank
Financial Indicators (1994-2003)
Source: Financial Sector Assessment 2001-02, State Bank of Pakistan Banking Supervision Department, State Bank of Pakistan
051015202530
1994
1995
1996
1997
1998
1999
2000
2001
2002
2003
Assets (% of assets of NCBs)
%
051015202530
1994
1995
1996
1997
1998
1999
2000
2001
2002
2003
Deposits (% of deposits of NCBs)
%
051015202530
1994
1995
1996
1997
1998
1999
2000
2001
2002
2003
Advances (% of advances of NCBs)
%
Muslim Commercial Bank
Non Performing Loans as % of Total Loans (1993-2003)
Source: Financial Sector Assessment 1990-2000, State Bank of Pakistan
Banking Supervision Department, State Bank of Pakistan
0
5
10
15
20
1993
1994
1995
1996
1997
1998
1999
2000
2001
2002
2003%
Muslim Commercial Bank
Return on Assets (1993-2003)
Source: Financial Sector Assessment 1990-2000, State Bank of Pakistan
Banking Supervision Department, State Bank of Pakistan
0.0
0.2
0.4
0.6
0.8
1.0
1993
1994
1995
1996
1997
1998
1999
2000
2001
2002
2003%
Muslim Commercial Bank
Impact Analysis of Privatization
• Assets as a proportion of total assets of the nationalized banks grew from 18 percent in 1994 to over 28 percent by 2003 – an increase of 10 percentage points.
• Deposits as a proportion of total deposits of the nationalized banks increased from 17.6 percent in 1994 to 26.5 percent in 2003.
• Advances as a percentage of total advances of nationalized banks were 17.7 percent in 1990 which had grown to 26.7 percent by 2003.
• NPLs as percentage of total loans varied between a low of 11 percent in 1997 to a high of 18.6 percent in 1993.
Allied Bank Limited
Second bank to be privatized in the public sector
On 9th September 1991, 26 % shares were sold to the
Allied Management Group, which represented the
employees of ABL at a price of Rs. 70 per share
On 23rd August 1993, another 25 % shares were sold to
AMG at price of Rs. 70 per share
This resulted in transfer of ownership from Government
of Pakistan to AMG
Allied Bank Limited
• In 1999, it transpired that one of ABL’s major defaulters had purchased about 35-40 % of ABL shares from employees.
• In July 1999, SBP imposed restriction on transfer of shares from employees to non-employees except on prior approval from SBP.
• On August 3, 2001, the SBP removed the Chairman and three Directors on the Board of ABL as they were found to be working against the interests of ABL and its depositors and appointed new Board.
Allied Bank Limited
ABL was excluded from list of privatization and the
strategic sale of the remaining 49 % govt. share was
transferred to the SBP.
In February 2004, 6 parties were pre qualified for bidding
Allied Bank Limited
Financial Indicators (1995-2003)
Source: Financial Sector Assessment 2001-02, State Bank of Pakistan Banking Supervision Department, State Bank of Pakistan
02468101214
1995 1996 1997 1998 1999 2000 2001 2002 2003
Assets (% of assets of NCBs)
%
0
5
10
15
20
1995 1996 1997 1998 1999 2000 2001 2002 2003
Deposits (% of deposits of NCBs)
%
0
5
10
15
20
1995 1996 1997 1998 1999 2000 2001 2002 2003
Advances (% of advances of NCBs)
%
Allied Bank Limited
Non performing Loans as % of Total Loans (1993-2003)
Source: Financial Sector Assessment 1990-2000, State Bank of Pakistan
Banking Supervision Department, State Bank of Pakistan
0
10
20
30
40
50
1993
1994
1995
1996
1997
1998
1999
2000
2001
2002
2003%
Allied Bank Limited
Return on Assets (1993-2003)
Source: Financial Sector Assessment 1990-2000, State Bank of Pakistan
Banking Supervision Department, State Bank of Pakistan
-5.0
-4.0
-3.0
-2.0
-1.0
0.0
1.0
1993
1994
1995
1996
1997
1998
1999
2000
2001
2002
2003%
Allied Bank Limited
Impact analysis of privatization
• Assets as a percentage of total assets of nationalized banks increased from 9.6 percent in 1995 to 12 percent by 2002.
• Deposits as a proportion of total deposits of nationalized banks grew from 9.8 percent in 1995 to 14.3 percent in 2003.
• Advances as percentage of total advances of nationalized banks peaked at 15.5 percent in 1999 but declined to 11.2 percent by 2003.
• NPLs as a proportion of total loans jumped from 16.1 percent in 1993 to 43.8 percent by 2003
Lessons Learnt
The Allied Bank was not transferred to a strategic
investor but employees. This approach proved to be even
worse than public sector ownership. Efforts are underway
to transfer the majority share to a private sector financial
institution through competitive bidding process.
In contrast, MCB was sold to a group of private
strategic investors who have turned around the bank and
improved all indicators including improved service to
customers, technology upgradation and cost efficiency.
Thank You
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