W_es 1%55 POLICY RESEARCH WORKING PAPER 1855 Stabilization, Adjustment, Except for the Baltics. the countrfies of the former Sow ie and Growth Prospects in Union developed and Transition Economies implemented reform ,ate 3ri. more slowly than tUe countries of Eastern Fmre. Cevdet Denizer Whv? The World Bank Development Research Group November 1997 I POLICY RESEARCH WORKING PAPER 1855 Summary findings Political change marked the difference between the Knowing where to go helped shape reform. The approaches of the countries of Eastern Europe and the Eastern European and Baltic countries, wanting to join former Soviet Union (FSU). the European Union and encouraged to do so, first The Baltics and most Eastern European countries initiated political reform, which led to economic reform. wanted to break away from communism and the FSU Most FSU countries, not knowing with whom to align, domination - so their transition was characterized first initially saw no choice but the Russian Federation. by political change. Communists were discredited and Once reforms are launched, the outcomes are quite removed from power, creating a period of similar. Growth starts about two full years after "extraordinary politics" and a window of opportunity stabilization, although it took about a year longer in the for reform. FSU. Initial conditions are important to the transition. The collapse of the FSU did not lead to political Short to medium-term prospects seem most favorable change in most FSU states. There were indications of to Eastern Europe and the Baltics, although they still discontent with the Union, but except for the Baltics have to catch up with the OECD countries. If admitted these were not as strong as in the Eastern European to the European Union, they may attain high growth countries and there were no explicit demands for rates even in the longer term. independence. The former communists hoped that the The FSU countries have even more catching up to do. Commonwealth of Independent States (CIS) set up after In the short to medium term, countries with slower the collapse of the FSU would evolve into a loose population growth rates and strong reform efforts should federation, maintaining old trade and financial links. enjoy rapid per capita growth. The Central Asian Many FSU countries avoided policies different from countries, with their high population growth rates, need Russia's. Most political leaders did not initially think that economic growth rates faster than their population they would need structural reform policies which could growth rates. This leaves little room for slowing reform. diverge from Russian policies. The pace of reform Given the benefits of integration, there is a strong case quickened only after the collapse of the ruble zone in the for Central Asian countries pushing for an economic FSU in 1993. union, which would also facilitate the restructuring of their economies. This paper -a product of the Development Research Group - is part of a larger effort in the group to study the progress of transition economies. Copies of the paper are available free from the World Bank, 1818 H Street NW, Washington, DC 20433. Please contact Emily Khine, room N11-061, telephone 202-473-7471, fax 202-522-3518, Internet address kkhine@worldbank.org. November 1997. (38 pages) The Policy Research Working Paper Series disseminates the findings of work in progress to encourage the exchange of ideas about development issues. An objective of the series is to get the findings out quickly, even if the presentations are less than fully polished. The papers carry the names of the authors and should he cited accordingly. The findings, interpretations, and conclusions expressed in this paper are entirely those of the authors. They do not necessarily represent the view of the World Bank, its Executive Directors, or the countries they represent. Produced by the Policy Research Dissemination Center Stabilization, Adjustment and Growth Prospects in Transition Economies Cevdet Denizer Macroeconomics and Growth Division Policy Research Department The World Bank I. INTRODUCTION It is now almost eight years since the transition from plan to market and from one party to democratic rule has begun in Eastern Europe (EE), and over five years in the former Soviet Union (FSU). It is widely agreed that this political and economic transition, affecting about one fourth of the world's population, has been a unique and historic experience'. In EE political regimes changed in a very short time ending one party system socialism. In further east, the collapse of the FSU resulted in fourteen newly independent states. Output declines surpassed expectations and some countries lost more than half of their GDPs by 1995. Over the course of the transition inflation has reached thousands of percent, especially in FSU countries, sharply lowering wages and hence living standards. The scope and scale of necessary policy reforms to complete the transition have been unprecedented. Since the entire economic and political edifice has collapsed, the transition required a "systemic change; liberalization of tightly controlled prices under socialism, freeing of foreign trade and opening up current and capital accounts, allowing private sector entry, privatization and enactment of laws for private property ownership, and restructuring of financial systems. However, the issue was not simply implementing these reforms. As noted by Bruno (1993) the main novelty in EE and FSU lied in "the revolutionary change in institutions and in the required norms of economic behavior...", Clearly, this includes, in fact requires, redefining the role of the State, a major task by itself. For a review of socialist sytem and some aspects of transition experience in a historical context see Kornai (1992). For a review of conceptual linkages among reform policies see Kornai (1995), and Blanchard (1997). For a comprehensive review of the economic issues during transition see Lavigne (1995). Stiglitz(1994) also discusses some important aspects of transition. Gros and Steinherr(1995) provide a thorough review of transition in EE. Eurpean Bank for Reconstruction and Developmet (EBRD) provides a review of transition in its annual Transition Report since 1994. For a comprehensive review of transition, including China's experience, see World Development Report (1996). 2 On this front, the EE and FSU countries faced different challenges. While the EE countries were sovereign states prior to the collapse of socialism, with the exception of Russia and the Baltics, the FSU states that became sovereign nations after the dissolution of in 1991 faced a double task: (i) developing an administrative capacity so as to function as a sovereign nation state; and (ii) creating national economies out of a highly integrated all Union plan based economy and converting it into a market based one. Hence, it was clear in the beginning that transition in the FSU would be more problematic. To this day, the transition has been an uneven process and cross country experience has varied significantly. Despite early difficulties, some countries have made impressive progress. Almost all EE countries stabilized their economies and by 1994 most were enjoying growth. In the FSU, output and inflation performance has been much more variable and transition has been more difficult as was expected. With the exception of a handful of countries, the majority of the countries in the FSU delayed reforms or adopted reforms gradually, and they suffered higher output falls and higher inflation than in EE. Nevertheless, by the beginning of 1995 stabilization efforts picked up in almost all FSU countries and most managed to control inflation. Structural reforms, however, with the exception of a few countries, have progressed at a slower pace and growth performance has not been as strong as in EE. Against this background, the objective of this paper is twofold. As the discussion above suggests and noted in the literature, reforms and economic outcomes varied widely across countries and this gave rise to "transition patterns" in terms of growth and inflation (World Bank). What accounts for these patterns? Is it largely due to policy variations or inherited initial conditions, or both? These questions are the focus of the first part of the paper. In the second part, the paper 3 considers the growth prospects of transition economies. Since they all suffered from output declines and improving welfare requires growth, this issue is high on the agenda for all transition economies. The focus is on the analysis of factors of that could facilitate or hinder growth based on the findings of the current empirical growth literature. The limitations of the data used in this paper and in other transition related studies is well known and are discussed elsewhere2. However, since the focus of the paper is on comparative patterns broadly rather than precise estimates of various aggregates or their analysis, it is thought that available data could serve the purpose on hand reasonably well. II. PERFORMANCE DURING THE TRANSITION This section provides a review of main macroeconomic aggregates, GDP growth and inflation rates in the EE and FSU up to 1996. The data organized according to the Cumulative Liberalization Index (CLI) originally prepared by de Melo, Denizer and Gelb (DDG). The CLI is annual and covers the period between 1989 - 1995. It is composed of three sub-indices and each vary between zero, representing a centrally planned economy and one, representing a reformed, market based economy. These are internal or domestic price liberalization and competition (I); foreign trade liberalization and current and capital account convertibility (E) and privatization, new entry regulations and small and large enterprise development (P). Using these three sub-indices and assigning them weights (0.3, 0.3, and 0.4 respectively) DDG create a cumulative liberalization index (CLI) for the same time period. In this way, the CLI captures both the intensity and duration of reforms. 2 For a discussion of the nature of data biases in transition countries see World Development Report (1996). 4 Following this exercise, the countries are grouped into reform categories. Countries that were affected by regional tensions or civil wars, are shown separately. The groupings are arranged by the following values of the CLI: Group 1: advanced reformers, CL>4 Group 2: (high) intermediate reformers, 2.7