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Questions and Answers on Sovereign Debt Issues
Last Updated: April 8, 2021
Last Updated: April 8, 2021
How big is the current debt problem and how is the COVID-19 pandemic affecting countries’ debt burdens?
When debt is unsustainable, restructuring is urgently needed. The IMF takes a case-by-case approach in assessing whether a country needs a debt restructuring, taking into account debt sustainability analysis and the continued availability of the financing that countries need for their long term growth and development. For those countries that have unsustainable debts, the IMF is precluded from lending unless the member takes steps to restore debt sustainability (including a debt restructuring). Already, the IMF is working with a number of countries to conduct the debt sustainability analysis (DSA) to determine the financing envelope necessary to restore debt sustainability and underpin member’s efforts to gain the debt relief needed to enable a lasting economic recovery.
The initiative focuses on IDA countries, because they are the poorest countries and are in urgent need of relief in order to increase health spending and address other needs related to the COVID-19 pandemic.
In supplying new financing to member countries, the IMF, like many other IFIs, provides these member countries with much needed resources to deal with emergency situations like this. While most official bilateral creditors have agreed to at least maintain their overall outstanding lending to the DSSI beneficiary countries, the IMF and the World Bank are substantially increasing their overall outstanding lending, and this lending is on favorable terms compared to the market.
The Common Framework for Debt Treatments beyond the DSSI is an agreement of the G20 and Paris Club countries to coordinate and cooperate on debt treatments for up to 73 low income countries that are eligible for the Debt Service Suspension Initiative (DSSI).
Debt treatments under the Common Framework are initiated at the request of a debtor country on a case-by-case basis. The framework is designed to ensure broad participation of creditors with fair burden sharing. Importantly, it includes not only members of the Paris Club but also G20 official bilateral creditors such as China, India, Turkey or Saudi Arabia that are not members of the Paris Club.
The Common Framework can be used to address a wide range of sovereign debt challenges of DSSI‑eligible countries:
To benefit from a debt treatment under the Common Framework a country must have an IMF‑supported program, such as an Extended Credit Facility, to support the implementation of suitable economic policies and structural reforms. In practice, this means that if a country does not currently already have a Fund-supported program, it will need to request one in conjunction with making a request for a debt treatment under the Common Framework. The IMF has a key role in working with the country authorities toward the development of a policy framework that will assist the country to regain external viability including by restoring sustained inclusive growth.
The second key role for the IMF is to define the financing envelope (or debt relief envelope) consistent with the parameters of the IMF-supported program, which informs creditor and debtor discussions on the necessary debt treatment. This financing envelope is based on the program macroeconomic framework and the accompanying debt sustainability analysis (DSA).
The recent requests from Chad, Ethiopia, and Zambia for a debt treatment under the Common Framework are welcome. The debt challenges that these countries face are quite different, but the Common Framework can provide a treatment that is tailored to their specific needs.
In some cases, where debt is sustainable, the debt treatment will help reduce debt vulnerabilities, such as the risk of debt distress. In other countries where debt is unsustainable, a debt treatment under the Common Framework could help the country meet the debt sustainability requirements necessary to enable to Fund to lend.
An IMF-supported program must be fully financed. In some cases, the Fund supported program serves to mobilize sufficient financing to meet a country’s needs, e.g., from multilateral development banks and other sources. In cases where these efforts do not generate sufficient financing to fill the program’s financing gaps, countries may need to seek a debt treatment under the Common Framework to ensure the program is fully financed, such as a rescheduling of debt service payments.
Any decision to seek debt treatments must be made by the country authorities. If there are debt vulnerabilities and/or financing issues that prevent the Fund from providing financial support to a country, the Fund would advise the country authorities accordingly. The country would then decide whether to seek a suitable debt treatment.
Given countries’ urgent financing needs and the highly uncertain environment, the DSSI provided temporary liquidity relief with the same debt treatment provided to all requesting countries. The debt service that was suspended in May to December 2020 is due for repayment after a one-year grace period with payments spread over the following three years. For the debt service suspended in the first six months of 2021, the grace period remains the same, but the repayments are spread over five years to avoid overlaps and bunching of debt service payments.
In contrast, when the Common Framework is used to provide liquidity relief, the rescheduling of debt service is tailored to the country’s specific needs, with the potential to cover debt service payments due over a number of years and to cover all or part of those payments. The terms of repayments, including the grace period, are to be adjusted to meet the duration and depth of the liquidity pressures facing the county.
A further important difference is that the DSSI encouraged, but did not require, comparable debt relief from private creditors and any other creditors that were not directly participating in the DSSI. By contrast, the Common Framework requires the debtor to seek from other creditors, including private creditors, a treatment at least as favorable as the one agreed under the Common Framework. How comparability of treatment will be implemented in relation to the private sector will depend on the circumstances as evaluated by the official bilateral creditors signing the agreement with the debtor country, who, in practice, apply comparability of treatment at the level of private creditors as a whole, rather than to each private creditor.
The DSSI lacked private sector participation in part because comparable treatment of private creditors was encouraged but not required. This reflected the priority at the outset of the crisis to provide immediate support to as many countries as possible.
In contrast, under the G20/Paris Club agreement on the Common Framework, the debtor country is required to seek a treatment from private creditors that is not less favorable than the treatment from official bilateral creditors. How the comparability of treatment will be implemented in relation to the private sector will depend on the circumstances as evaluated by the official creditors signing the agreement with the debtor country, who, in practice, apply comparability of treatment at the level of private creditors as a whole, rather than to each private creditor.
Gold provides fundamental strength to the Fund’s balance sheet, benefiting both creditors and debtors alike and enabling the Fund to play its effective role as a crisis lender.
Reaching an agreement on gold sales requires a very broad consensus—approval by an 85 percent majority of the total voting power.
The Fund has lending capacity to support middle income countries with debt vulnerabilities.
The IMF has endorsed key features of enhanced collective action clauses and encouraged their inclusion in international bond contracts to facilitate orderly debt restructurings, and this existing contractual framework has been largely effective. Nonetheless, the resolution of sovereign debt distress can still be challenging given the diversity of creditors and debt instruments and there is a need to strengthen the international debt “architecture”. The goal is to provide speedy and sufficiently deep debt relief to countries that need it, benefitting not only these countries but the system as a whole. The IMF has substantial expertise in this area, and IMF staff recently published a new staff note taking stock of the current international architecture for restructuring privately held debt and noting possible options for improvements.