Jun 25, 2023
On 15 June 2023, the National Treasury presented Kenya’s FY’2023/2024 National Budget, to the National Assembly highlighting that the total budget estimates for FY’2023/24 increased by 8.7% to Kshs 3.7 tn from the Kshs 3.4 tn in FY’2022/2023 while the total revenue inclusive of grants increased by 15.7% to Kshs 3.0 tn from the Kshs 2.6 tn in FY’2022/2023. The increase is mainly due to 17.3% increase in ordinary revenue to Kshs 2.6 tn for FY’2023/2024, from the Kshs 2.2 tn in FY’2022/23.
The FY’2023/2024 budget focuses mainly on providing solutions to the heightened concerns on the high cost of living, the measures put in to accelerate economic recovery as well as undertaking a growth-friendly fiscal consolidation to preserve the country’s debt sustainability. Notably, the government projects to narrow the fiscal deficit to 4.4% of GDP in FY’2023/24, from the estimate of 5.8% of GDP in FY’2022/23. As such, this week, we shall discuss the recently released budget and the tabled Finance Bill 2023 with a key focus on Kenya’s fiscal components. We shall do this in four sections, namely:
Section I: FY’2022/2023 Budget Outturn as at May 2023
The National Treasury gazetted the revenue and net expenditures for the eleven months of FY’2022/2023, ending 31 May 2023. Below is a summary of the performance:
(Amounts in Kshs bn unless stated otherwise) |
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Cytonn Report: FY'2022/2023 Budget Outturn - As at 31 May 2023 |
||||||
Item |
12-months Original Estimates
(A) |
Revised Estimates
(B) |
Actual Receipts/Release
(C) |
Percentage Achieved of the Revised Estimates
(D) = C/B |
Prorated
(E) = B *(11/12) |
% achieved of the Prorated
(F)= C / E |
Opening Balance |
0.6 |
|||||
Tax Revenue |
2,071.9 |
2,108.3 |
1,740.4 |
82.5% |
1,932.6 |
90.1% |
Non-Tax Revenue |
69.7 |
83.7 |
71.1 |
85.0% |
76.7 |
92.8% |
Total Revenue |
2,141.6 |
2,192.0 |
1,812.2 |
82.7% |
2,009.3 |
90.2% |
External Loans & Grants |
349.3 |
520.6 |
311.8 |
59.9% |
477.2 |
65.3% |
Domestic Borrowings |
1,040.5 |
886.5 |
464.7 |
52.4% |
812.6 |
57.2% |
Other Domestic Financing |
13.2 |
13.2 |
15.5 |
117.4% |
12.1 |
128.0% |
Total Financing |
1,403.0 |
1,420.3 |
792.0 |
55.8% |
1,302.0 |
60.8% |
Recurrent Exchequer issues |
1,178.4 |
1,266.0 |
975.1 |
77.0% |
1,160.5 |
84.0% |
CFS Exchequer Issues |
1,571.8 |
1,552.9 |
1,130.1 |
72.8% |
1,423.5 |
79.4% |
Development Expenditure & Net Lending |
424.4 |
393.8 |
191.1 |
48.5% |
361.0 |
52.9% |
County Governments + Contingencies |
370.0 |
399.6 |
305.3 |
76.4% |
366.3 |
83.3% |
Total Expenditure |
3,544.6 |
3,612.3 |
2,601.6 |
72.0% |
3,010.3 |
86.4% |
Fiscal Deficit excluding Grants |
1,403.0 |
1,420.3 |
789.5 |
55.6% |
1,302.0 |
60.6% |
Fiscal Deficit as a percentage of GDP |
|
|
5.9% |
|
|
|
Total Borrowing |
1,389.8 |
1,407.1 |
776.4 |
55.2% |
1,289.9 |
60.2% |
The key take-outs from the report include:
The government has been unable to meet its revenue targets for the eleven months of the FY’2022/2023, mainly on the back of the tough economic situation exacerbated by the elevated inflationary pressures that have remained above the CBK target range of 2.5%-7.5%, with the year on year inflation rate in May 2023 coming in at 8.0%, up from 7.9% recorded in April 2023. But it is good to n ote that the absorption rate has also remained below the pro rated amounts. As such, the government is yet to fully benefit from the strategies put in place to improve revenue collection such as expanding the revenue base and sealing tax leakages, and suspension of all tax relief payments. However, we believe that the current measures such as the expected implementation of the Finance Bill 2023 that will lead to the upward readjustment of the Excise Duty Tax, Income Tax as well as the Value Added Tax will play a big role in expanding the tax base and consequently enhance revenue collection.
Section II: Comparison between FY’2022/2023 and FY’2023/2024 Budgets estimates
The Kenyan Government budget has been growing over the years on the back of increasing recurrent and development expenditures. The chart below shows the evolution of the government budget over an eleven-year period:
Source: National Treasury of Kenya
For the FY’2023/2024, the budget is projected to increase by 8.7% to Kshs 3.7 tn, from Kshs 3.4 tn in FY’2022/2023. The expenditure will be funded by revenue collections of Kshs 3.0 tn and borrowings amounting to Kshs 718.0 bn.
The table below summarizes the key buckets and the projected changes:
(Amounts in Kshs billions unless stated otherwise) |
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Cytonn Report: Comparison between FY’2022/2023 and FY’2023/2024 Budgets Estimates |
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Item |
FY'2022/23 Supplementary Budget I |
FY'2023/24 Estimates |
Change y/y (%) |
Ordinary Revenue |
2,192.0 |
2,571.2 |
17.3% |
Total Appropriation-in-Aid |
336.8 |
348.7 |
3.5% |
Total grants |
31.4 |
42.2 |
34.2% |
Total Revenue & Grants |
2,560.3 |
2,962.0 |
15.7% |
Recurrent expenditure |
1,498.7 |
1,564.9 |
4.4% |
Recurrent Consolidated Funds Services (CFS) |
867.8 |
986.2 |
13.6% |
Development expenditure |
618.2 |
743.5 |
20.3% |
County Transfer & Contingencies |
399.6 |
385.4 |
(3.5%) |
Total expenditure |
3,384.3 |
3,680.0 |
8.7% |
Fiscal deficit inclusive of grants |
(824.0) |
(718.0) |
(4.2%) |
Projected Deficit as % of GDP |
(5.8%) |
(4.4%) |
(1.4%) points |
Net foreign borrowing |
395.8 |
131.5 |
(66.8%) |
Net domestic borrowing |
428.3 |
586.5 |
37.0% |
Total borrowing |
824.0 |
718.0 |
(12.9%) |
Source: Financial Statement For the FY 2023/2024-Budget , The Mwananchi Guide for the FY’2023/24 National Treasury of Kenya |
Some of the key take-outs include;
Section III: Analysis and House-view on Key Aspects of the FY’2022/2023 Budget
Revenue is projected to increase by 15.7% to Kshs 3.0 tn in FY’2023/24, from Kshs 2.6 tn in the FY’2022/23 supplementary budget. The increased revenue projections in the FY’2023/24 are mainly attributable to the projected 17.3% growth in ordinary revenue to Kshs 2.6 tn in FY’2023/24, from Kshs 2.2 tn in the FY’2022/23 budget. The main sources of revenue will be:
The chart below compares ordinary revenue projections for FY’2023/24 and FY’2022/23:
The government relies on the effectiveness of the Kenya Revenue Authority in collecting taxes as well as increase in some of the existing taxes to meet its revenue target. Historically, the government has struggled to meet its target revenue collections resulting to an ever-present fiscal deficit. As such, there are still concerns about the government's ability to meet its revenue collection targets in FY’2023/2024, on the back of the current operating environment. The business environment has deteriorated with the average PMI for the first 5 months in 2023 coming at 48.9 below the 50-mark threshold, mainly occasioned by high inflationary pressures and the rising interest rates. The chart below shows the ordinary revenue performance in the previous fiscal years:
Source: National Treasury of Kenya and Kenya Revenue Authority
*Total Revenue collection as of 31 May 2022
Expenditure is expected to increase by 8.7% to Kshs 3.7 tn, from Kshs 3.4 tn in the FY’2022/23 budget with recurrent expenditure taking up 69.3% of the total expenditure for FY’2023/2024, in comparison to the 69.9% in FY’2022/2023. The chart below shows the comparison between the recurrent expenditure allocations and development expenditure allocations over the past five fiscal years:
*Recurrent Expenditure includes the Consolidated Fund Services (CFS) Expenditure
Some of the key take-outs include;
(Amounts in Kshs billions unless stated otherwise) |
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Cytonn Report: Kenya Budget Highest Expenditure Allocations |
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Item |
FY'2019/2020 |
FY'2020/2021 |
FY'2021/2022 |
FY'2022/2023 |
FY'2023/2024 |
Change |
CAGR |
Interest Payments, pensions & Net Lending |
553.3 |
586.5 |
718.3 |
867.8 |
986.2 |
13.6% |
12.3% |
Education |
494.8 |
505.1 |
503.9 |
544.4 |
628.6 |
15.5% |
4.9% |
Infrastructure |
435.1 |
363.3 |
383.3 |
416.4 |
468.2 |
12.4% |
1.5% |
County shareable Revenue |
310.0 |
316.5 |
370.0 |
399.6 |
385.4 |
(3.5%) |
4.5% |
Public Admin & Int. Relations |
298.9 |
289.3 |
299.7 |
342.2 |
327.0 |
(4.4%) |
1.8% |
Total |
2,092.1 |
2,060.7 |
2,275.2 |
2,570.4 |
2,795.4 |
8.8% |
6.0% |
Source: The Mwananchi Guide for the FY’2023/24 National Treasury of Kenya
Notably, the allocation to interest payment, pension and net lending increased by 13.6% to Kshs 986.2 bn in FY’2023/24 from Kshs 867.8 bn in FY’2023/24, partly attributable to high cost of servicing debt.
The total borrowing for the FY’2023/24 is set to reduce by 12.9% to Kshs 718.0 bn, from Kshs 824.0 bn, in FY’2022/23 budget estimates. The public debt mix is projected to comprise of 18.3% foreign debt and 81.7% domestic debt, from 48.0% foreign financing and 52.0% domestic financing as per the FY’2022/23 budget. The debt servicing costs are set to rise by 19.4% to Kshs 1.6 tn in FY’2023/24, from Kshs 1.4 n in the FY’2022/23 budget. The rise in debt servicing expenses can be partly attributable to the depreciation of the Kenyan shilling given that a larger proportion of external debt is denominated in US dollars. The chart below shows the evolution of public borrowing to fill the fiscal deficit gap over the last five years:
The key take-outs from the chart include:
We therefore note the persistent fiscal deficit is mainly on the back of low revenue collection and high expenditure. As such, the government needs to minimize spending through the implementation of structural reforms and the reduction of amounts extended to recurrent expenditure. This would allow the government to refinance other critical sectors, such as agriculture, resulting in increased revenue.
Section IV: Key Tax changes in the Finance Bill and their impact
The Cabinet Secretary for the National Treasury tabled the Finance Bill 2023 in Parliament for discussion and consideration. The proposed tax measures in the Finance Bill 2023 are expected to add about Kshs 379.2 bn to the exchequer for the fiscal year 2023/24. The bill was passed by Parliament following the third reading and now awaits the president's assent, after which the provisions will take effect. Among the proposals are:
Under the Income Tax Act;
Under the Excise Duty Act;
Under the Value Added Tax Act;
Given the tight fiscal space, the Finance Bill 2023 aims to shore tax revenue which is expected to support the 3.7 tn budget for FY’2023/2024. The government intends to mobilize ordinary revenue of Kshs 2.6 tn, 17.3% increase from the 2.2 tn in FY’2022/23. As such, the government will have a fiscal deficit inclusive of grants of Kshs 718.0 bn. However, we expect the increase and introduction of additional taxes in addition to the changes in National Health Insurance Fund (NHIF) contributions and the new contribution requirement in the National Social Security Fund (NSSF) to severely impact households’ disposable income.
Section IV: Conclusion
The Kenyan economy has continued to remain resilient despite recording a slowdown in growth to 4.8% in 2022 compared to a growth of 7.6% recorded in 2021. The slowdown was partly attributable to the uneven weather patterns experienced in 2022, which impacted agricultural production, given agriculture is the main contributor to the GDP. However, the economy is expected to rebound in 2023 and expand by 5.5%, mainly supported by private sector growth, continued strong growth of the financial services sector, and recoveries in the agricultural sector. Furthermore, in the FY’2023/2024 budget, the government has allocated Kshs 4.5 bn for the fertilizer subsidy program aimed at lowering the cost of farm input and enhance food supply in the country.
The government has reduced its appetite for foreign debt, projecting to borrow Kshs 131.5 bn in foreign debt in the FY’2023/24, a 66.8% decrease from 395.8 billion in the FY’2022/23. The move is expected to lower the cost of debt servicing, given that foreign debt has been ballooning as a result of the Kenya shilling's sustained depreciation against major currencies. However, the government's shift to borrow more domestically, by projecting to increase its domestic borrowing by 37.0% to Kshs 586.5 bn in FY’2023/24, from Kshs 428.3 bn in FY’2022/23, is expected to have an impact on credit to the private sector. This is mainly because bank’s view lending to the government as more secure than lending to the private sector in order to minimize losses given the elevated credit risk.
Overall, we are of the view that the main driver of the growing public debt is the fiscal deficit occasioned by lower revenues as compared to expenditures. As a result, implementing robust fiscal consolidation would help the government bridge the deficit gap. This can be achieved by minimizing spending through the implementation of structural reforms and the reduction of amounts extended to recurrent expenditure. Fiscal consolidation would also allow the government to refinance other critical sectors, such as agriculture, resulting in increased revenue. However, the overall risk to the economy remains high, owing to the high debt servicing costs in the next fiscal year given the maturing USD 2.0 bn Eurobond due in June 2024.
Disclaimer: The views expressed in this publication are those of the writers where particulars are not warranted. This publication, which is in compliance with Section 2 of the Capital Markets Authority Act Cap 485A, is meant for general information only and is not a warranty, representation, advice or solicitation of any nature. Readers are advised in all circumstances to seek the advice of a registered investment advisor.