Select Committee on Trade and Industry Written Evidence


APPENDIX 10

Memorandum by the Export Credits Guarantee Department

CONTENTS

Introduction to ECGD
Institutional Developments at ECGD since 2000
  Mission and Status Review 1999-2000
  Progress towards Capitalisation
  Business Principles
  Transparency
  EGAC
  Internal Organisation
  Governance Structures
  New Customer Service Team
New business and the long-term perspective
  New Business since 1999
  FREF
  Active Portfolio Management
The Legacy Portfolio
  Management of ECGD's historical debt
  Account 1/Account 2
  Debt payments and rescheduling
Current and Future Issues
  ECGD's financial objective and competitiveness
  Business strategy and the proposed Ministerially-led Strategy Forum
  International strategy to achieve a level playing field
  Costs/income balance
Concluding Remarks


ANNEXES
Annex A:  External reports
Annex B:  Customer Survey & ECA comparisons
Annex C:  Claims payments 1980-1992
Annex D:  Analysis of claims outstanding by market as at 31 March 1993
Annex E:  Claims against recoveries and interest received
Annex F:  Recoveries of sovereign and non-sovereign debt
Annex G:  Account 1 unrecovered claims at 31 March 2003

INTRODUCTION TO ECGD

  1.  ECGD is the UK's official Export Credit Agency (ECA). It is a separate Government Department reporting to the Secretary of State for Trade and Industry and derives its powers from the 1991 Export and Investment Guarantees Act. Its 400 staff are based in London Docklands and in Cardiff.

  2.  ECGD's aim is to benefit the UK economy by helping exporters of UK goods and services win business, and UK firms to invest overseas, by providing guarantees, insurance and reinsurance against loss, taking into account the Government's wider international policy agenda.

  3.  ECGD's role is to help UK capital goods manufacturers and investors trade overseas by providing them with insurance and/or backing for finance to protect against non-payment. ECGD operates on a break-even basis, charging exporters premium at levels that match the risks and costs in each case.

  4.  The largest part of ECGD's operation involves underwriting finance packages to support the sale of capital goods (such as aircraft and machinery) and services, and to help UK companies take part in overseas infrastructure projects such as the construction/upgrading of hospitals, airports and power stations. Support can be given for contracts as low as £25,000 but some of the projects ECGD backs can go well beyond the £100 million mark.

INSTITUTIONAL DEVELOPMENTS AT ECGD SINCE 2000

Mission and Status Review 1999-2000

  5.  The "ECGD Mission and Status Review 1999-2000" (MSR) was published in July 2000. Its conclusions were informed by the Trade and Industry Select Committee's January 2000 report "The Future of the Export Credits Guarantee Department" and by the International Development Committee's report "ECGD—Development Issues" of December 1999, and by a wide-ranging public consultation exercise.

  6.  The MSR strongly reaffirmed that ECGD's role is to bring economic benefit to the UK by supporting exporters, and its conclusions set out a new direction for ECGD. These included:

    —  Introducing greater openness and transparency to ECGD's operations.

    —  Widening the remit and membership of the Export Guarantees Advisory Council (EGAC).

    —  Seeking to attract more small and medium-sized exporters and investors.

    —  Ensuring ECGD's policies and activities were consistent with the Government's objectives of promoting sustainable development, human rights, good governance and trade.

  7.  The review further recommended that ECGD move towards a capitalised funding system, and that a government Trading Fund would be the most suitable vehicle to deliver this. See Annex A for details of two key external reports on ECGD released at the time that had relevance in this context.

  8.  A Trading Fund is a means of financing trading activities undertaken by the Government. Whilst operating within a framework agreed with Ministers, a Trading Fund has greater freedom to manage its financial affairs. In particular it can use its income to settle its liabilities and retain any cash balances at year-end. It is, however, still subject to the same centrally applied administrative rules and procedures as a Government department.

PROGRESS TOWARDS CAPITALISATION

  9.  ECGD initially planned to move to formal Trading Fund status by April 2002. Further work revealed, however, that more had to be done to put the Department's information and risk management systems into shape and in July 2002 the Secretary of State made an announcement to that effect.

  10.  As part of the MSR changes, the Department announced (in March 2003) a package of measures to help UK exporters. This included introducing an improved Country Cover regime; streamlining procedures to approve more deals more quickly in line with ECGD's Customer Charter; developing private sector links with banks with the aim of making larger deals easier to complete; and restructuring its process for the environmental and social screening of projects to reduce the burden on industry, while maintaining the rigour of ECGD's scrutiny.

  11.  ECGD is now preparing for a move to a Trading Fund, to be preceded by a public consultation and a pilot period, the latter to allow for testing and refinement of the financial framework that will underpin the capitalised Trading Fund.

BUSINESS PRINCIPLES

  12.  A key recommendation from the MSR was that before the end of 2000 ECGD should publish a statement of Business Principles and policies and plans for achieving them. In September 2000, ECGD recruited an expert in Business Principles and established the Business Principles Unit to add impetus to achieving best practice in this area. In December 2000, ECGD issued a statement of its Business Principles.

  13.  This helped fulfil the MSR recommendation on openness: that customers should know what is expected of them, to help ensure that these additional processes are efficient and do not put them at a competitive disadvantage.

  14.  Since January 2001, an impact analysis process has been part of ECGD's case assessment process to ensure that the environmental, social and human rights aspects of projects ECGD supports are compatible with standards used by multinational financial institutions such as the World Bank. The analysis covers not only the exported goods themselves but also the overseas projects for which they are destined.

TRANSPARENCY

  15.  One of the findings of the Mission and Status Review was that there should be a presumption of transparency and openness on ECGD's part, subject to respecting the legitimate confidence of its customers and overseas buyers or borrowers.

  16.  As part of its Business Principles, ECGD has taken several positive steps to improve transparency and is now matching best practice amongst ECAs. ECGD has developed a far more pro-active approach to stakeholder engagement than previously:

    —  Since 2001, ECGD's Annual Report has included a list of issued guarantees

    —  High impact cases are now listed on the website prior to the underwriting decision being made

    —  Environmental Impact Assessments (EIAs) will be publicly available for high impact cases before the underwriting decision is made

    —  Regular discussions now take place with customers and NGOs on projects and policy.

  17.  ECGD, like all ECAs, cannot always disclose all information about its business. However, commercial confidentiality is invoked only where it is necessary to protect the competitive position of UK companies.

EGAC

  18.  The Export Guarantees Advisory Council meets on a regular basis to give advice to the Secretary of State for Trade and Industry. The Council comprises senior figures from the exporting and finance fields and other relevant areas. The role of the Advisory Council is to advise on the underlying policies and principles which ECGD needs to follow in order to achieve its Mission Statement, particularly how ECGD should take account of the wider impact of projects on overseas countries.

  19.  In order to reflect this broader role, the Council's membership was revised in 2000-01 to bring in outside expertise in the new areas highlighted in the Mission and Status Review: taking greater account of the needs of smaller exporters; the developmental benefits of projects ECGD supports; and their environmental and other impacts. Three of the 10 members of the Council are experts on sustainable development and corporate social responsibility.

  20.  The Council normally provides its advice to ECGD's Senior Management Team, and also on occasions directly to Ministers or to other Departments. The Secretary of State is statutorily obliged to consult the Council on reinsurance issues. As part of ECGD's drive to be more open and transparent, the Council's minutes are published on ECGD's website.

INTERNAL ORGANISATION

  21.  In September 2001 ECGD's Underwriting Group was reorganised from a geographic to a sectoral basis. ECGD's customers are now handled by the same underwriting team regardless of the country to which they wish to export.

  22.  Business managers regularly visit customers for relationship meetings and have constant dialogue on new business. ECGD also attends conferences and seminars in the pursuit of industry knowledge and contacts generally. In short ECGD knows its customers far better and aims to give them a better, more informed service than before.

CEO/CHAIR

  23.  As part of ECGD's transition to a Trading Fund, the Government decided to strengthen the Department's top management structure by creating a new board with an independent Chair and a new Chief Executive to succeed Vivian Brown.

  24.  Vivian Brown announced in May 2003 that he intended to step down as ECGD's Chief Executive after more than five years in post. A CEO designate has now been chosen after a thorough selection process and an announcement on the identity of the candidate is expected this spring.

  25.  In January this year, former banker Graham Pimlott was appointed Chair. The role was designed to bring private sector experience to the business of ECGD and to contribute to the strengthening of ECGD's corporate governance. Mr Pimlott's extensive background in investment and corporate banking fits this mandate.

GOVERNANCE STRUCTURES

  26.  In line with one of the recommendations of ECGD's Mission and Status Review, three non-Executive Directors were appointed to ECGD's Management Board in April 2001 to provide an independent source of advice and expertise. They help with strategic planning within ECGD and provide an independent perspective to decision-making on the Board.

  27.  To help strengthen ECGD's internal controls and corporate governance arrangements, two of the non-Executive Directors are also part of ECGD's Audit Committee, one acting as its Chair.

NEW CUSTOMER SERVICE TEAM

  28.  In July 2002, the Secretary of State for Trade and Industry, Patricia Hewitt, announced that ECGD would focus its attention on making it easier for companies to access its support.

  29.  Following this announcement ECGD improved access to its services for companies new to export credit finance and insurance by launching the New Customer Service Team (NCST) in November 2002. The team provides prospective customers with the necessary specialist advice and support about ECGD products and the benefits of its facilities.

  30.  This initiative has received more than 2,000 enquiries (of which about 200 have been from SMEs) and handled £15 million of firm business from three new customers (of which two are SMEs). The NCST is also cultivating 36 prospective new customers who have been issued with preliminary cost indications for £320 million of business. The success of these prospects depends upon exporters signing contracts and fulfilling commercial requirements.

NEW BUSINESS AND THE LONG-TERM PERSPECTIVE

NEW BUSINESS SINCE 1999

  31.  During the last five years ECGD's business has remained concentrated in the aerospace and defence sectors.

ECGD SUPPORT TO DEFENCE EXPORTS (1998-99 to 2002-03)


Year
Defence as % of total
Total (£m)

1998-99
52
3,725
1999-2000
34
5,504
2000-01
48
5,662
2001-02
31
3,298
2002-03
50
3,532


  Source: ECGD Annual Reports

  32.  The defence sector receives a significant proportion of the overall assistance provided by ECGD as the table above illustrates. ECGD's main customers for this business are usually large UK companies but many smaller sub-contractors across the country also benefit from support. ECGD's defence business mainly concerns support services, such as manpower, training and repairs.

ECGD SUPPORT TO AEROSPACE EXPORTS (1998-99 to 2002-03)


Year
Aerospace as % of total
Total (£m)

1998-99
22
3,725
1999-00
28
5,504
2000-01
22
5,662
2001-02
22
3,298
2002-03
15
3,532


  Source: ECGD Annual Reports

  33.  Support for aerospace remains a leading driver of ECGD's business. ECGD helped to contain the turmoil in the world's airline industry after 11 September by a measured response to the withdrawal of cover for war terrorist acts by commercial insurers, which left many airlines unable to comply with key covenants in finance documentation. ECGD also continued to cover new business with over £400 million underwritten in the remaining financial year after the 11 September attacks. ECGD's commitment to the sector during this period was particularly appreciated by leading manufacturers and their suppliers. Despite the difficult circumstances in 2001-02, ECGD issued guarantees to exporters and investors in all sectors worth £3.3 billion, generating premium of £77 million.

  34.  Bombardier became a customer of ECGD over the past two years to cover its manufacture in Northern Ireland toward the company's regional jets.

  35.  2000-01 represented a milestone for ECGD. The total amount of business supported was £5.66 billion, generating premium of £109 million. This was the most successful year, in terms of the value of guarantees issued, since the short-term arm of ECGD's operations was privatised in 1991.

  36.  ECGD has classified the top 10 customers in any given financial year, in terms of the business amount they have brought in, as key customers. As ECGD's overall customer base has shrunken, the relative dependence on these customers has increased. See Annex B for details of ECGD's 2003 customer survey and ECA Comparisons report.

ECGD SUPPORT TO TOP 10 CUSTOMERS (1998-99 to 2002-03)


Year
Top 10 as % of total
Total (£m)
Total
Customers

1998-99
74
3,725
98
1999-00
72
5,504
93
2000-01
82
5,662
80
2001-02
85
3,298
54
2002-03
84
3,532
70


  Source: Capital Pricing Division report and ECGD Annual Reports

  37.  The performance of ECGD Credit Insurance Guarantees issued after 1 April 1991 (Account 2) has been robust, with trading surpluses reported in all, but one, of the last 13 years. There was a trading deficit in only one year, 1997-98, as a result of changes in risk and significant claims on ECGD following the South East Asian debt crisis. However, ECGD returned a substantial trading surplus (£129 million) the following year and restored its cumulative trading surplus (wiping out the impact of 1997-98) by 1999-2000, with significant trading surpluses reported each year since.

FREF

  38.  Under the Fixed Rate Export Finance (FREF) scheme, UK exporters can offer the overseas buyer long term finance at fixed rates of interest. ECGD makes up any difference between the fixed and the variable floating rates. This means ECGD taking on interest rate risk in addition to the underlying credit risk.

  39.  The policy on FREF up to April 2001 was a very generous one for exporters, and led to significant losses to the Exchequer in the 1980s and 1990s. ECGD had a specific public expenditure non-cash limited provision, which in recent years ran at around £40-50 million a year (in 1990-91 it was over £500 million). A fundamental review of the scheme in 1999 concluded that whilst the ultimate aim should be to abolish FREF, a unilateral withdrawal of the FREF scheme would have serious competitive implications for UK exporters. Therefore the Government would work with other countries to reduce and eventually abolish subsidies provided through FREF-type schemes. ECGD and the Treasury are currently working closely together to seek to remove where possible trade-distorting subsidies within FREF type schemes, on a multilateral basis.

  40.  While the Government presses other countries to reduce the subsidies they provide through FREF-type schemes, the review recommended that ECGD should review the feasibility of operating the scheme on a break-even basis. In April 1999 the Government decided that FREF should operate on a break-even basis, and a revised FREF scheme (new FREF) began in April 2001.

  41.  Meanwhile ECGD has the job of managing the run down of the Old FREF portfolio. The costs of Old FREF (estimated at around £100 million) are being shared between ECGD and Treasury, with the latter bearing most of the risk (85.3% compared with 14.7%). This should have no impact on premium rates or the continued provision of New FREF.

ACTIVE PORTFOLIO MANAGEMENT

  42.  ECGD has developed an Active Portfolio Management (APM) programme to achieve a more balanced portfolio by managing down concentrations of risk (80% of its exposure being in 20 markets) and thereby greater capital efficiency. This reflected a key recommendation of the 1999 KPMG Risk Management Review.

  43.  As a new venture ECGD first had to develop a strategy for taking forward APM, which it did with the help of outside advisers. The initial plan was to offer part of the portfolio to reinsurers in 2001. The launch was adversely affected by difficult market conditions following the events of 11 September. It was therefore decided to take broader soundings of the market. However, procurement issues prevented completion of a competition that included capital market as well as reinsurance risk transfer solutions. In the meantime, ECGD has been able to pursue a trial programme of Credit Default Swaps (CDSs) to start the transfer of risk in some of its most concentrated markets to the private sector. A CDS is an over-the-counter financial instrument through which one party assumes another's credit risk in return for a premium.

  44.  The trials, involving the purchase of CDSs on China and South Africa (these markets were selected for portfolio reasons rather than because of concerns about the risks themselves), were a success and delivered good value for money. ECGD will now be considering how best to carry forward its APM programme in the light of this experience.

THE LEGACY PORTFOLIO

Management of ECGD's historical debt

  45.  The international debt crisis of the 1980s had a severe negative impact on financial institutions in both the public and private sectors. ECGD had to draw heavily on the Consolidated Fund to meet its obligations and developed rigorous new financial systems to try to prevent such a catastrophic loss recurring.

  46.  Claims payments started to rise significantly during the financial year 1979-80 due to developments in Iran, Turkey and certain African markets. The table at Annex C illustrates the rising trend in claims and provision during the 1980s and the adverse impact on ECGD's cash balance and reserves.

  47.  The surge in claims resulted from a series of sovereign defaults. While the cause varied from country to country, the defaults took place against the backdrop of oil crises, global recession, inflation and excessive indebtedness across a broad spectrum of emerging markets. The contribution of different countries to the claims may be gauged from the analysis of claims outstanding by market as at 31 March 1993 at Annex D.

  48.  Recoveries of claims paid started to pick up from the mid 1980s. By the middle of the 1990s these exceeded the declining level of claims being paid (Annex E). At 31 March 1981 the UK had debt rescheduling agreements with 10 countries entered into at various dates since 1972 (namely Chile, Ghana, Guinea, Indonesia, Peru, Sierra Leone, Sudan, Togo, Turkey and Zaire). By 1990-91 the number of countries had risen to 55 and was still rising. It will be seen from the table at Annex F that since the end of the 1980s recoveries have been predominantly of sovereign debt.

Account 1—Account 2

  49.  On the privatisation of its short-term business and the introduction of new regulations, ECGD ring-fenced its guarantees issued prior to 1991 into "Account 1". A new "Account 2" was established for guarantees issued for project business since April 1991 and for Overseas Investment Guarantees.

  50.  Under its new arrangements, ECGD has been able to make a net contribution to the Exchequer since 1991 in all but one year (the exception occurring in 1997-98 as a result of paying significant claims in Indonesia, a majority of which ECGD expects to recover over time). Nevertheless, the debt crisis did leave ECGD with significant liabilities and these have been the focus of both Parliamentary and media interest in recent months.

  51.  As of April 2003, ECGD's un-recovered claims under Account 1 stood at £5.4 billion and those under Account 2 £831 million, ie 85% of the principal debt outstanding for recovery by ECGD was incurred prior to 1991 and largely as a result of the global debt crisis of the 1980s. The markets principally contributing to the unrecovered claims under Account 1 were Nigeria, Poland and Iraq (see Annex G). In addition to these sums, moratorium and delay interest of around £4 billion is also outstanding. This represents the interest charged by ECGD on outstanding debts where it is able to do so. Indeed, ECGD has received substantial sums in interest payments for many years as well as recovery of the original principal debt: for example, the Department earned around £158 million of interest on account 1 in 2002-03.

  52.  In line with normal accounting practice, ECGD has made provisions for loss against its old debts. This information is published each year in its Annual Report. The Accounts for 2002-03 show that the Department expects to recover 37.5% of amounts outstanding. This is comparable to other similar institutions; indeed, in many instances ECGD and other export credit agencies achieve a higher recovery rate than other institutions under the multilateral Paris Club arrangements. ECGD is required to consider value for money considerations in pursuing recoveries of old debts.

Debt payments and rescheduling

  53.  When a country experiences economic difficulties and cannot meet its external repayment obligations, debt can be restructured multilaterally on mutually agreed terms at the Paris Club, a group of sovereign creditors. ECGD forms part of the Treasury-led UK delegation to the Paris Club.

  54.  The Heavily Indebted Poor Countries (HIPC) Initiative provides debt relief to the world's poorest and most heavily indebted countries, with the aim of reducing debt-to-export ratios of these countries down to a target of 150%. To receive debt relief under the Initiative, eligible countries need to make a commitment to poverty reduction and meet a number of conditions, such as completion and implementation of a Poverty Reduction Strategy, measures to reform public expenditure, maintaining macroeconomic stability, and reaching certain targets in the health or education sector.

  55.  ECGD has written off £919 million of HIPC debt (as of September 2003) and remains committed to writing off a further £1.43 billion.

  56.  ECGD also offers a debt conversion scheme, allowing it to sell Paris Club debt owed to the UK on condition that the proceeds go towards assisting the social or economic development of the debtor country.

  57.  As an example, in December 2003 ECGD sold £69.5 million of Jordanian debt to a local company to set up a state of the art information and communications technology (ICT) link within Jordan. Debt sales benefit all parties: ECGD recovers debt (albeit at a discount) earlier than it would under a rescheduling agreement, the debtor's hard currency obligations are reduced, and the purchaser gets local currency at a discount for investment in the local economy.

CURRENT AND FUTURE ISSUES

ECGD's financial objective and competitiveness

  58.  ECGD's Account 2 (post-1991 business) has a specific financial objective to operate with a reasonable confidence of breaking even. To do this, it charges exporters premium at levels that cover expected loss and other administrative and operational factors. From this, reserves are built up to pay for claims if overseas buyers/borrowers default on payment.

  59.  ECGD's `financial framework' is the detailed financial criteria jointly agreed between ECGD and Treasury that provides assurance that ECGD is operating within these specific objectives.

  60.  Competitiveness with other ECAs remains a priority issue for many of ECGD's customers, with a number of major UK exporters and associations emphasising the importance they place on a competitive ECGD. This demand needs to be balanced against HMG's requirements to provide value for money for taxpayers. The Government will seek liberalisation on a multilateral basis: ECGD and HM Treasury are working closely together to press other countries to reduce their export subsidies.

Business strategy and the proposed Ministerially-led Strategy Forum

  61.  The Secretary of State has decided to establish a Strategy Forum to set Government policy for export credit support. Ministers and senior officials from the DTI and HMT are to meet ECGD's Chairman and Chief Executive and Chair of the Export Guarantees Advisory Council to agree ECGD's medium to long term strategic objectives and direction.

  62.  This is designed to provide a mechanism for key government stakeholders in the provision of export credit support to agree a clear policy for balancing the interests of taxpayers and exporters, and an agreed means of reviewing progress. This should give ECGD's Management Board regular strategic direction for developing the Department's future.

International strategy to achieve a level playing field

  63.  Internationally, ECGD is working to maintain and extend the multilateral framework for export credit disciplines to further eliminate any trade-distorting subsidies and create a level-playing field for UK exporters. The following are the main policy issues being progressed:

    —  The overall framework within which OECD export credit agencies provide export credit support and the relationships with the WTO has been revised.

    —  Reform of fixed rate interest make up across ECAs.

    —  Anti-Bribery and Corruption—following the successful conclusion of negotiations for enhanced procedures for assessing project environmental impacts, the OECD's Export Credit Group is now looking at enhancing anti-bribery and corruption procedures.

    —  The way in which export credit agencies price to cover risk.

    —  Aerospace. ECGD has led the reforms to harmonise the support provided by the Airbus export credit agencies (ECAs) (ECGD, Coface and Hermes).

    —  Tied Aid. ECGD continues to monitor Tied Aid to protect disciplines in this area, with the aim of minimising the competitive disadvantage that UK exporters represent to foreign competitors supported by mixed credits.

Costs/income balance

  64.  The development of ECGD's business base has to be seen against the background of the shift in the economy of the UK and other Western countries towards a service base.

  65.  International competitive pressures on large manufacturers have increased vastly in recent years. Global economic interdependence through transnational networks of multinational companies has opened new opportunities to gain competitive advantages for specific operations.

  66.  This has resulted in increased efforts in outsourcing or relocating certain manufacturing bases, which are labour-intensive, to low cost countries. This leaves high value-added and locally bound operations in the UK. The result reduced UK capital goods manufacturing to a small proportion of its former size, now mainly in high-value added and niche production.

  67.  Accordingly, ECGD business has levelled off in recent years. ECGD has increasingly relied on a few large companies in the civil aerospace, defence and oil & gas sectors. As a result, a review will be undertaken to establish the appropriate size and shape of the department, consistent with the levels of business and premium income anticipated in the future.

CONCLUDING REMARKS

  68.  Since the Trade and Industry Select Committee last looked at ECGD, the Department has undergone a number of fundamental changes following on from the Mission and Status review.

  69.  Despite a number of significant challenges—both internally and in the wider economic environment—the Department supported a record amount of business in the financial year 2000-01. It continues to support an average annual level of business around £3.5 billion. The Department is on target to reach its financial objectives for the current year.

  70.  In addition, ECGD has been at the forefront of international efforts to reduce subsidies in export credits, improve the environmental screening of projects, and in combating bribery and corruption in ECA-supported projects.

  71.  Negotiations over the next stages in ECGD's evolution are continuing. A consultation exercise is planned for customers and stakeholders to help inform decisions Ministers will need to take on ECGD's future. In this respect, the Trade and Industry Select Committee's decision to revisit ECGD is well timed.



 
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