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1994-05-02
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<text>
<title>
Paraguay: Economic Policy
</title>
<article>
<hdr>
Economic Policy and Trade Practices: Paraguay
</hdr>
<body>
<p>1. General Policy Framework
</p>
<p> Paraguay, with a population of 4.27 million, an annual
population growth rate of 2.9 percent, and total land area of
154,047 square miles, has a small domestic market and limited
but expanding access to world markets through the Paraguay/
Parana river system. Asuncion is the political, financial,
administrative, and commercial center of the country. The
capital city with its suburbs has a population of about 1.7
million people, nearly forty percent of the total population of
the country.
</p>
<p> Paraguay is predominantly an agricultural country with vast
hydroelectric potential but no known significant mineral or
petroleum resources. The economy is highly dependent on
production and exports of soybeans and cotton which together
accounted for nearly 70 percent of total exports in 1990.
Construction of the massive Itaipu hydroelectric project greatly
accelerated Paraguay's economy. Completion of the Yacyreta
hydroelectric project with Argentina should further spur
economic growth and make Paraguay the world's larger exporter
of hydroelectric energy.
</p>
<p> The change in government in February 1989 marked the end of
34 years of Stroessner's repressive regime. The new
administration implemented a sweeping economic liberalization
program. In February 1989, the Government of President Andres
Rodriguez eliminated the multiple exchange rate system and
adopted a free floating market rate. The move greatly reduced
economic distortions, particularly in the trade area and in the
public sector. The Rodriguez Administration has also implemented
a number of monetary measures to control inflation and to free
interest rates. At the same time, the government eliminated
price controls on basic products, reduced export taxes, and
provided fiscal incentives to encourage investment and attract
foreign investors.
</p>
<p> The decision to reinstate Paraguay as a beneficiary of the
U.S. Generalized System of Preferences (GSP) program effective
February 6, 1991, led to Paraguay's restoration as a beneficiary
of the Overseas Private Investment Corporation (OPIC) programs
in August 1991.
</p>
<p> Fiscal Policy: The Rodriguez Administration has made control
of government expenditures one of its chief goals. The central
government ran a budget surplus, in both 1989 and 1990 and is
projecting budget surpluses for 1991 and 1992. Despite the
budget surplus many public enterprises still present deficits
and are heavily indebted. No progress has been achieved to
privatize these public enterprises. Currently, the Congress is
considering two bills on the privatization of public enterprises
</p>
<p> Monetary Policy: During 1989, inflation accelerated, fueled
by the shock of the exchange rate adjustment and expansionary
pressures on the Central Bank. Since January 1991, the
Government has given top priority to the fight against
inflation. This has been achieved through the implementation of
highly restrictive monetary measures. As a result, the annual
inflation rate has been reduced from 44.1 percent in 1990 to
an expected 15 percent in 1991. In order to control the money
supply, the Central Bank has restricted credit by maintaining
relatively high reserve requirements for banks and other
financial institutions.
</p>
<p> These monetary measures have raised real interest rates
making access to credit difficult for most producers,
particularly farmers. As a result, economic growth has declined
in recent months. In order to control the situation and
stimulate economic growth, on July 30, the Central Bank eased
its restrictive monetary policy by reducing reserve requirements
for deposits in local currency.
</p>
<p>2. Exchange Rate Policy
</p>
<p> Currently, Paraguay does not have controls on foreign
currency exchange transactions. Foreign currency may be freely
acquired at banks and exchange houses. While the foreign
exchange rate is free to float, the Central Bank is authorized
to participate in the market to avoid unusual fluctuations in
the exchange rate. During 1991, the Central Bank has played an
active role in the exchange market by buying dollars in order
to prevent overvaluation of the local currency. High interest
rates offered in the local market have attracted millions of
speculative dollars to Paraguay contributing to the appreciation
of the guarani against the dollar.
</p>
<p> Despite the massive purchase of dollars by the Central Bank
to maintain the value of the guarani, since the change of
government in February 1989 through the end of October 1991, the
local currency has been depreciated only 22.7 percent against
the dollar. Meanwhile, the accumulated inflation rate reached
81.7 percent during the same period.
</p>
<p>3. Structural Policies
</p>
<p> Pricing policies: The economic system in Paraguay favors
free enterprise. Economic incentives and resource allocation in
general are guided by the price mechanism. Recent progress has
been made by the Rodriguez Administration in order to liberalize
prices for certain basic products, such as sugar, bread and
liquid gas for cooking. Nevertheless the government still
maintains price controls on some strategic goods and services
such as gasoline and medicines. Prices of utilities, including
telephone, electricity, and water, are established by the
government. Likewise, the Asuncion city government has power to
set the price of public transportation. The minimum monthly wage
is also fixed by the government.
</p>
<p> Tax policy: The current tax system relies primarily on
indirect taxes. The proposed FY1991 budget indicates that about
30 percent of estimated central government revenues will be
derived from sales and stamp taxes, 22.6 percent from the
royalties produced from Itaipu, 13 percent from taxes and duties
on imports and exports (mainly imports), 8.3 percent from income
taxes (mainly corporate taxes), 1.5 percent from real state
taxes, and the remaining from miscellaneous revenue sources.
Corporate income is taxed at progressive rates, reaching a
maximum rate of 30 percent. The government provides tax
incentives for exports of manufactured products. Law No. 90/90,
effective December 1990, introduced incentives for the export
of manufactured products, including the elimination of export
duties and related taxes. Law No. 60/90 established fiscal
incentives for domestic and foreign investment providing
exemptions from many types of taxes and custom duties for a
period of up to five years.
</p>
<p> Tax reform: Tax evasion has been widespread in Paraguay. To
reduce tax evasion and simplify the current complex and obsolete
tax system, in June 1991, the Ministry of Finance presented to
the Paraguayan Congress a tax reform proposal. The proposal
includes the imposition for the first time of a value-added tax,
but does not include the controversial personal income tax.
</p>
<p> Regulatory policies: Paraguay does not have significant
discriminatory import restrictions such as quotas and other
administrative restrictions that may impact negatively on U.S.
exports. The government has maintained a two tier import tariff
structure. Rates between 5 and 35 usually are designed for
revenue generation, rates over 35 percent usually are applied
to items competing with goods produced by local manufacturers or
to items considered as luxury imports. Currently, the top rate
is 70 percent, but this level is rarely applied. Imported goods
are not subject to prior licensing. However, foreign goods
competing with goods manufactured by local producers may be
subject to special treatment such as prohibition or temporary
import restriction. A large percentage of U.S. exports to
Paraguay is destined for third countries, mainly Brazil and
Argentina.
</p>
<p>4. Debt Management Policy
</p>
<p> The Paraguayan external debt increased substantially between
1976 and 1981. From 1982 until 1987 the fore