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Title page 1
Contents 7
Foreword 15
Acknowledgments 17
About the Authors 19
Overview 21
Abbreviations 63
1. From Growth-Enabling to Growth-Enhancing Fiscal Policy 64
Introduction 64
Government revenue in EAP 68
Government spending in EAP 88
From growth enabling to growth enhancing: What needs to change 102
Conclusion 124
Annex 1A. Methodology for tax capacity estimation 128
Annex 1B. Explaining the size of government: A summary of theoretical perspectives 130
Annex 1C. Human capital and growth: Theory and evidence 132
Notes 133
References 134
2. Fiscal Policy for Macroeconomic Stability 143
Introduction 143
Fiscal policy over the business cycle in EAP 145
Fiscal space and debt sustainability in EAP 169
Rebuilding fiscal space in EAP: Institutions, rules, and buffers 180
Conclusion 193
Annex 2A. Supporting tables and figures 194
Annex 2B. Debt accounting 197
Notes 197
References 198
3. Fiscal Policy for Equity: Taxes, Spending, and Distributional Impacts 203
Introduction 203
Impact of taxes and spending on poverty and inequality in EAP 209
Cost-effectiveness of fiscal redistribution: The roles of revenue and expenditures 215
Designing fiscal policy for equity and growth 219
Spending more effectively: Program design and implementation 238
The political economy of fiscal reform 243
Notes 253
References 256
4. Policy Implications: A Growth-Enhancing Fiscal Compact in EAP 262
Introduction 262
Spending prioritization 264
Domestic revenue mobilization 275
Fiscal capacity and public support 278
Conclusion 291
Notes 291
References 292
FIGURE O.1. GDP growth and GDP growth volatility, 1976-96 and 1999-2019 22
FIGURE O.2. Drivers of growth in East Asian economies, 1971-2023 23
FIGURE O.3. Poverty in EAP, excluding China, 2001-24 24
FIGURE O.4. Income per capita and Gini index, selected EAP economies 25
FIGURE O.5. Fiscal policy for long-term growth and productive jobs: A conceptual framework 27
FIGURE O.6. Government revenue, spending, and public investment 28
FIGURE O.7. Statutory CIT and effective tariff rates, EAP and comparators 31
FIGURE O.8. Government spending on human capital: Selected EAP economies and comparators, 2000-22 32
FIGURE O.9. Human Capital Index, 2020 34
FIGURE O.10. Cyclicality of spending, by size of government and expenditure subcomponent, EAP and comparators, 2000-22 36
FIGURE O.11. Social benefits and public debt during the economic cycle, East Asia and comparators 37
FIGURE O.12. Public debt, growth, and interest rates, East Asia 38
FIGURE O.13. Existing pension schemes and liabilities, EAP 40
FIGURE O.14. Framework for rebuilding fiscal space: Planning, commitment, and resilience 41
FIGURE O.15. Drivers of poverty reduction, selected EAP economies 42
FIGURE O.16. Change in poverty rate, by type of government spending program, EAP and comparators 42
FIGURE O.17. Change in Gini index, by type of government spending program, EAP and comparators 43
FIGURE O.18. Additional growth from aligning education spending with average of aspirational countries, selected EAP economies 45
FIGURE O.19. Benefit-cost ratios for investments in energy and transportation, selected EAP economies 46
FIGURE O.20. Triple dividends of climate adaptation and the example of sectoral benefits in the Philippines 47
FIGURE O.21. Transfers and subsidy cost-effectiveness, selected EAP economies 49
FIGURE O.22. GST revenue and capacity, selected East Asian economies, 2000-20 51
FIGURE O.23. Consumption patterns, by income decile, Indonesia and the Philippines 52
FIGURE O.24. Effective VAT rate, by income decile, after accounting for the enhanced VAT voucher, Singapore 53
FIGURE 1.1. Government revenue, spending, and public investment, EAP and comparators 65
FIGURE 1.2. Statutory CIT and effective tariff rates, EAP and comparators 69
FIGURE 1.3. Maximum corporate income tax holidays, selected EAP economies and comparators, 2022 70
FIGURE 1.4. Statutory PIT rates, EAP and comparators 73
FIGURE 1.5. VAT rates, EAP and comparators, 2025 74
FIGURE 1.6. Tax revenue, by type of tax, EAP and comparators, 2000-22 76
FIGURE 1.7. CIT revenue and presence of MNEs, EAP and comparators 77
FIGURE 1.8. CIT rates and CIT revenues, selected EAP economies, 2000-07 vs. 2020-22 78
FIGURE 1.9. PIT revenue, EAP and comparators, 2000-22 79
FIGURE 1.10. PIT revenue, PIT rate, and informality rate, EAP economies 80
FIGURE 1.11. GST revenue in EAP, 2000-22 81
FIGURE 1.12. Observed and potential VAT revenue, Thailand, EAP, and comparators, 2018 86
FIGURE 1.13. Trade tax revenue, East Asia and comparators, 2020-22 87
FIGURE 1.14. Tariffs, tax revenue, and trade, East Asia, 2000-07 vs. 2020-22 88
FIGURE 1.15. Government spending vs. income and trade, EAP and comparators, 2000-22 89
FIGURE 1.16. Public investment and income, EAP and selected East Asian economies, 2000-19 92
FIGURE 1.17. Economic classification of government spending, East Asia and comparators, 2000-22 93
FIGURE 1.18. Government consumption and income, East Asian economies and comparators 94
FIGURE 1.19. Government spending on social benefits: East Asia, the Pacific Islands, and comparators, 2000-22 96
FIGURE 1.20. Spending on human capital, EAP and comparators, 2000-22 97
FIGURE 1.21. Evolution of government spending, by function, EAP, 2000-22 98
FIGURE 1.22. Human capital and income, EAP and comparators, 2000-22 99
FIGURE 1.23. Subsidies as a share of GDP, selected EAP economies and comparators, 2000-22 101
FIGURE 1.24. Impacts of taxation on FDI and growth 105
FIGURE 1.25. Drivers of GDP growth, EAP and China, 1970-2023 107
FIGURE 1.26. Human capital outcomes, EAP economies and comparators 109
FIGURE 1.27. Education and health components of the Human Capital Index Plus, EAP and comparators, circa 2024 111
FIGURE 1.28. Fixed and mobile broadband, EAP 114
FIGURE 1.29. Benefit-cost ratios for investments in energy and transportation, selected EAP economies 115
FIGURE 1.30. Climate-adjusted estimated infrastructure investment needs 115
FIGURE 1.31. Infrastructure priorities 116
FIGURE 1.32. Human capital investment priorities 117
FIGURE 1.33. Triple dividends of climate adaptation 119
FIGURE 1.34. Sectoral benefits of climate adaptation, the Philippines, by 2030 and 2040 120
FIGURE 1.35. Priorities for climate adaptation, by exposure and capacity level 121
FIGURE 1.36. Population aging and per capita income, selected EAP economies and comparators 122
FIGURE 1.37. Working-age population and share of people working beyond working age, EAP and comparators 123
FIGURE 1.38. Pension spending and contribution rates, selected EAP economies 123
FIGURE 2.1. Volatility, growth, and cyclicality of government spending, 2000-22 144
FIGURE 2.2. Cyclicality and size of government: East Asian economies, Pacific Island countries, and comparators, 2000-22 146
FIGURE 2.3. Tax rate changes and real GDP: East Asian economies, Pacific Island countries, and comparators, 2000-22 153
FIGURE 2.4. Cyclicality, by government expenditure subcomponent, 2000-22 156
FIGURE 2.5. Social benefits during the economic cycle, EAP and comparators 158
FIGURE 2.6. Primary balance, selected East Asian economies and comparators, 2010-19 163
FIGURE 2.7. Primary balance over the cycle: EAP, comparators, and selected EAP economies, 2000-23 164
FIGURE 2.8. Public debt accumulation, EAP and China, 2000-27 170
FIGURE 2.9. Drivers of debt accumulation, EAP and China, 2000-27 171
FIGURE 2.10. Debt, interest rates, and economic growth 175
FIGURE 2.11. Projected debt under different interest rate scenarios, Fiji and Malaysia, 2026-30 176
FIGURE 2.12. Projected debt under different growth scenarios, China and Thailand, 2026-30 177
FIGURE 2.13. Debt composition and maturity, selected EAP economies and comparators 179
FIGURE 2.14. Reliance on concessional public debt: East Asian economies, Pacific Island countries, and comparators, 2015-19 180
FIGURE 2.15. Rebuilding fiscal space: Planning, commitment, and resilience 181
FIGURE 2.16. Fiscal rules, by country income group and type of rule, 1985-2024 185
FIGURE 2.17. Association between primary balance and fiscal rule adoption, East Asia 188
FIGURE 3.1. Poverty in EAP, 2001-24 204
FIGURE 3.2. Change in Gini index, by type of fiscal instrument and income level, all countries 210
FIGURE 3.3. Change in Gini index, by type of fiscal instrument and income level, EAP 211
FIGURE 3.4. Change in poverty rate, by type of fiscal instrument and income level 213
FIGURE 3.5. Change in poverty rate, by type of fiscal instrument, selected EAP economies 214
FIGURE 3.6. Cost-effectiveness of inequality reduction, by major fiscal instrument, global data 216
FIGURE 3.7. Cost-effectiveness in reducing poverty and inequality, by type of fiscal instrument, selected EAP economies 217
FIGURE 3.8. Progressivity of fiscal instruments, by income level 218
FIGURE 3.9. Indirect taxes, transfers, and net impact relative to market income, by decile, selected EAP economies and comparators 222
FIGURE 3.10. Consumption patterns, by income decile, Indonesia and the Philippines 226
FIGURE 3.11. Share and value of VAT preferential rates, by household income decile, Thailand and Viet Nam 228
FIGURE 3.12. Actual VAT revenue, administrative gap, and compliance gap, the Philippines, 2018 229
FIGURE 3.13. VAT policy gap in Indonesia, 2016-21 229
FIGURE 3.14. Share of total direct taxes, by decile and country income level 230
FIGURE 3.15. Direct taxes as a share of market income, by decile and country income level 231
FIGURE 3.16. Share of individuals paying direct taxes, by income decile, Thailand, 2019 232
FIGURE 3.17. Total tax incidence (decile average) and social security incidence (decile average for payers) by decile (percentage of market income),... 232
FIGURE 3.18. Social assistance, energy, and agriculture subsidy spending, by region and income level 233
FIGURE 3.19. Learning poverty and lack of basic skills, by region 234
FIGURE 3.20. Contribution to GDP of quality vs. quantity, and GDP increase by 2100 of doing both 235
FIGURE 3.21. Impact on poverty rate of simulated designs, by budget level and coverage, the Philippines 239
FIGURE 3.22. Impact on poverty gap of simulated designs, by budget level and coverage, the Philippines 240
FIGURE 3.23. Fiscal policy impact on poverty under different social assistance budgets and targeting scenarios, Malaysia 242
FIGURE 3.24. Predicted log household per capita consumption using 2015 PMT models vs. true log household per capita consumption, Indonesia 242
FIGURE 3.25. Cash transfer spending compared to beliefs in why people are poor, selected countries 246
FIGURE 3.26. Beliefs about self-sufficiency and the importance of work 247
FIGURE 3.27. Effective VAT rate, by income decile, after accounting for the enhanced VAT voucher, Singapore 253
FIGURE 4.1. Additional growth from aligning education spending with average of aspirational countries, selected EAP economies 265
Boxes 8
Box 1.1. Long corporate tax holidays: The case of Fiji 71
Box 1.2. Estimating tax capacity and revenue gaps in East Asia and Pacific 82
Box 1.3. Infrastructure investment under limited fiscal space: Lessons from Indonesia 90
Box 1.4. Corporate taxation and firms' behavior in emerging market and developing economies 103
Box 1.5. When should the state spend? Public vs. private provision in health, education, and climate adaptation 125
Box 2.1. Cyclicality and fiscal resilience in Pacific Island countries 148
Box 2.2. Fiscal decentralization and procyclical spending in developing economies 150
Box 2.3. Fiscal response during COVID-19 159
Box 2.4. Fiscal discipline and the cyclicality of fiscal policy: An empirical analysis 165
Box 2.5. Persistent deficits and contribution to public debt: The case of Malaysia 171
Box 2.6. Public Finance and Fiscal Responsibility Act in Malaysia 183
Box 2.7. Fiscal rules and Mongolia's debt distress of 2016 189
Box 2.8. Fiscal discipline without a formal rule: The case of the Philippines 190
Box 3.1. Social protection and growth 205
Box 3.2. Examining a comprehensive revenue and spending reform for Malaysia 236
Box 3.3. Little evidence that cash transfers lead to labor market disincentives or "bad" consumption in developing countries 244
Box 3.4. International experience of fuel subsidy reforms 248
Box 3.5. Personalized value added tax in Brazil 250
Box 4.1. Policy actions for a growth-enhancing fiscal compact in East Asia and Pacific 263
Box 4.2. The cost and benefits of building climate resilience 267
Box 4.3. Population aging and pension reform in East Asia and Pacific 271
Box 4.4. From low-revenue traps to high-capacity states: A simple framework of taxation and spending 279
Box 4.5. Improving fiscal rules in East Asia and Pacific: The role of escape clauses 283
Box 4.6. Fiscal councils and fiscal credibility 285
Box 4.7. International experience of fuel subsidy reforms 289
FIGURE B1.2.1. Tax capacity, EAP and comparators, 2000-07 vs. 2010-19 83
FIGURE B1.2.2. GST revenue and capacity, EAP and comparators, 2000-20 84
FIGURE B1.5.1. Public vs. private goods: A framework for public spending 126
FIGURE B2.1.1. GDP growth and growth volatility, Pacific Island countries and comparators, 2000-19 148
FIGURE B2.1.2. Reliance on concessional public debt, EAP and comparators, 2015-19 150
FIGURE B2.2.1. Local government spending and procyclicality 152
FIGURE B2.3.1. Fiscal response to COVID-19, by region and in EAP 160
FIGURE B2.3.2. Difference between observed and predicted fiscal response to COVID-19, by region and in EAP 161
FIGURE B2.4.1. Average deviation from primary deficit forecasts, selected EAP economies and comparators, 2011-23 166
FIGURE B2.5.1. Primary government spending and government revenue, Malaysia, 2000-24 172
FIGURE B2.5.2. US 10-year Treasury interest rate and drivers of debt in Malaysia 173
FIGURE B2.5.3. Effective interest rates and interest payments, Malaysia, 2000-24 174
FIGURE B2.8.1. Primary balance, the Philippines, 2000-19 190
FIGURE B3.2.1. Impact on inequality of taxes, transfers, subsidies, and in-kind services, by scenario and income level 237
FIGURE B4.2.1. Adaptation actions cited, by sector 267
FIGURE B4.2.2. Sectoral benefits from climate adaptation investments, the Philippines 269
FIGURE B4.4.1. Marginal benefit of spending and marginal cost of taxation 280
FIGURE B4.5.1. Number of fiscal rules with and without escape clauses 284
FIGURE B4.6.1. Number of independent fiscal councils, by type of economy, 1985-2024 285
FIGURE B4.6.2. Association between fiscal council adoption and sovereign spread 286
Maps 14
MAP O.1. Climate risk and population aging, EAP and the rest of the world 26
MAP 1.1. Global distribution of paved roads per capita 113
MAP 1.2. Climate Risk Index ranking, 1999-2019 118
FIGURE 2A.1. Government size and cyclicality of primary expense, using different filtering techniques 195
FIGURE 2A.2. Correlation of primary balance forecast with government effectiveness and rule of law 196
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