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Identifying and Managing Cost and Risk on Public Debt Portfolio: Step 2

Identifying and Managing Cost and Risk on Public Debt Portfolio: Step 2. UNCTAD, World Bank and IMF Workshop Geneva, February 06-10 2017. Step 2: Cost & risk of existing debt Cost and risk: Conceptual issues Cost, risk, and the choice of time horizon Indicators for market risk exposure.

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Identifying and Managing Cost and Risk on Public Debt Portfolio: Step 2

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  1. Identifying and Managing Cost and Risk on Public Debt Portfolio: Step 2 UNCTAD, World Bank and IMF Workshop Geneva, February 06-10 2017

  2. Step 2: Cost & risk of existing debt Cost and risk: Conceptual issues Cost, risk, and the choice of time horizon Indicators for market risk exposure Outline

  3. Objectives Identify outstanding debt and its composition Calculate basic cost and risk indicators Analyze the current risk profile Identify the current debt management strategy Outputs Detailed information on outstanding debt Debt servicing profile of outstanding debt Description of main portfolio risks Step 2: Cost & Risk of Existing Debt

  4. Why do we need to understand the current portfolio? Provides clues on which strategies to explore: • What is the starting point? • Is the existing cost and risk structure satisfactory or do we need to change? • Are there any risks we need to worry about in particular? What risks do we need to mitigate? Provides important input for cost-risk analysis: • Debt service projections • Definition of general instrument types

  5. Cost and risk: conceptual issues

  6. Primary Balance - Interest payments = Fiscal Balance - Principal payments = Funding need The primary balance is decided by fiscal policy The interest cost are (at least partially) determined by debt management When the budget is presented, the focus is typically the fiscal balance Basic Budget Arithmetic

  7. The Framework for the Strategy Cost/Risk Analysis Information on cost and risk Constraints Debt Management Strategy Development Demand constraints Consistency/ constraints, e.g. sustainability Information on cost and risk Initiatives Macroeconomic Framework Debt Market Development

  8. Decision-makers need information on Cost: Annual interest payments + the impact of changes in exchange rates Risk: Changes in future cost and the impact on the budget Focus here is market risk – other risks, e.g. related to contingent liabilities, operational risks etc. should also be identified and managed Local currency as numeraire? Nominal cost? Over what time horizon? Cost and Risk (1)

  9. Since debt management objectives are expressed in terms of cost and risk, these concepts should have concrete interpretations in order to design debt management strategies that meet such objectives Clear definitions of cost and risk is the first step of developing a comprehensive strategy Choice of time horizon and unit for cost measurement should be consistent with characteristics of the assets Future stream of primary surpluses will normally be denominated in local currency Medium to long term time horizon Cost and Risk (2)

  10. Examples of cost measures Nominal interest Real interest cost Interest cost as a percentage of GDP Interest cost as a percentage of revenues Debt to GDP, et. Different cost measures provide different information on cost - do not rely on one cost measure Cost and Risk (3) 10

  11. Risk is associated with the potential for the cost to deviate from its expected outcome on the budget and in the government’s balance sheet A debt portfolio that has higher costs in recessions when public finances are strained for other reasons, is more risky than a portfolio for which the opposite is true Cost and Risk (4)

  12. The challenge is to identify a debt structure that mitigates the risk of fiscal adjustment Clear definition of cost and risk very important for strategy development - Choices will be country specific Often more than one measure for cost and risk is needed to properly reflect cost and risk Risk measure will depend on the definition of cost, and is focused on budget impact Time horizon for public debt management is medium to long term Cost and Risk - Summary

  13. Indicators for market risk exposure

  14. General Approach to Measuring Risk Increase in debt service produced by a unexpected shift in market rates that may hit the budget at t+1 • Exposure: Endogenous to debt management • Risk Factor: Exogenous, except for refinancing risk 15

  15. Refinancing risk Interest rate risk Currency risk Strategy considers 3 types of market risks

  16. Refinancing Risk “Refinancing risk is the risk that debt will have to be rolled over at unusually high cost, or in extreme cases, cannot be rolled over at all” Revised Guidelines for Public Debt Management, 2014

  17. Refinancing Risk - Can be highly country-specific • Unexpected fiscal needs will imply a very large debt burden, possibility of higher inflation, higher probability of default… • Investors may feel less confident, demand a higher yield, only invest in the short-term, or not re-invest at all. • Developing domestic markets: i.e. a non-diversified investor base, can raise uncertainties about refinancing • Demand in a still-developing domestic market may be unstable • Political risk: i.e. highly polarized political situation, can affect government’s legal capacity to refinance • A legislative body may not approve the executive’s refinancing plans

  18. Refinancing Risk - Can be highly country-specific • International markets: i.e. global economic crisis when investors are in “ flight to quality” mode or may need liquidity • This sudden lack of demand can trigger or exacerbate a refinancing crisis • Contagion: Demand can dry up even if a country’s fundamentals are relatively good

  19. Measuring Exposure to Refinancing Risk • Average Time to Maturity • Redemption profile • Share of debt falling due within a specific time period - shape of the redemption profile

  20. Rt : Principal payment due at time t STOt: Nominal value of total debt stock at time t t: Current period : Residual time to maturity n: Final maturity Average Time to Maturity (ATM) • Example • One loan is fixed rate amortizing with 4 years remaining maturity • The other loan is variable rate amortizing with 4 years remaining maturity ATM: Focus on timing of repayment

  21. Average Time to Maturity (ATM) ?

  22. Shape of the Redemption Profile The redemption profile is a reflection of the funding sources (market access)

  23. Shape of the Redemption Profile • Helps detect patterns that could cause problems if future refinancing conditions get difficult • Each funding source should be monitored as refinancing risk depends on the source • Timing matters: while the yearly aggregate issuance might not be excessive, if redemptions are concentrated (e.g. in one single day) then high refinancing risk will arise

  24. Shape of the Redemption Profile

  25. Refinancing risk Interest rate risk Currency risk Strategy considers 3 types of market risks

  26. Interest Rate Risk • The risk of increases in the cost of the debt arising from changes in interest rates. • For both domestic and foreign currency debt, changes in interest rates affect debt servicing costs on new issuances when fixed rate debt is refinanced and on floating rate debt at the rate reset dates. • Hence, short-term or floating rate debt is usually considered riskier than long-term, fixed rate debt.” Revised Guidelines for Public Debt Management, 2014

  27. Interest Rate Risk: Interest payments can be a large part of government expenses

  28. Interest Rate Risk: Interest payments can be a large part of government expenses

  29. Measuring Exposure to Interest Rate Risk • Debt exposed to interest rate re-fixing within a specific time period • Maturing fixed rate debt to be rolled over • Variable rate debt (including interest rate swaps) • Average Time to Re-fixing (ATR) • Variable rate debt ratio • Variable rate debt as a percentage of total debt

  30. FRDt: nominal value floating rate debt outstanding at time t r: time to next interest rate reset in years STOt: nominal value of total debt stock at time t : residual time to maturity t: current period n: final maturity RFt : nominal value fixed-rate debt due at time t Example One loan is fixed rate amortizing with 4 years remaining maturity The other loan is variable rate amortizing with 4 years remaining maturity ATR: Focus on timing of interest rate re-fixing Average Time to Re-fixing (ATR)

  31. Strategy considers 3 types of market risks • Refinancing risk • Interest rate risk • Currency risk

  32. Share of external debt in total debt Currency composition Degree of currency mismatch ALM considerations Government inflows in foreign currency Currency composition of central bank reserves Degree of synchrony with a hard-currency economy Measuring Exposure to FX risk

  33. Why Calculate Risk Exposure Indicators? • As risk has different dimensions, debt managers normally use a set of risk indicators/targets rather than relying on a single one • As a mean of controlling and communicating the risks on the government’s debt, debt managers use a number of risk indicators to reflect different aspects of risk and describe the debt management strategy being applied

  34. Strategic targets Represent the characteristics of the desired debt portfolio, and Express the sovereign’s preferences with regard to the cost/risk tradeoffs Strategic targets need to be derived from the cost/risk analysis and are unique to each sovereign Forward looking Indicators for flow vs. stock Risk Indicators as Strategic Targets

  35. Hungary (2016) The share of FX debt should be below 35%, and declining FX exposure after swaps should be 100% EUR, - 5% Interest rate re-fixing for domestic debt should be 17-39% For FX debt, 66% should be fixed interest rate, +/-5% Macaulay duration of the HUF debt portfolio is targeted at 3 years +/- 0.5 years Examples of Strategic Targets

  36. Examples of Strategic Targets • Brazil (2016)

  37. Examples of Strategic Targets • Czech Republic (2016) • The share of debt falling due within • one year <25%, • five years <70% • ATM: 6.0 s +/- 0.25 years • Interest rate re-fixing should be 30-40% • ATR: 4.0-5.0 years • Net FX exposure: 15%

  38. Risk is a function of the risk factor and the exposure As risk has different dimensions, debt managers normally use and monitor a set of risk indicators rather than relying on a single one Whatever indicators a debt manager decides to use, it is important that they are calculated on a regular basis, e.g. monthly, and tracked over time Market risk indicators are useful means of understanding and communicating risks on the debt A set of risk exposure indicators can be used to describe the strategy – strategic targets Summary

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