Georgia: Statistical Hiccup Prompts World Bank Downgrade

Georgia’s economy appeared to take a step backward earlier this summer when the World Bank demoted the country to “lower-middle-income” status. The demotion, however, has more to do with statistical hiccups than it does with a substantial decline in economic activity.
In 2016, Georgian officials cheered when the World Bank promoted the country into the ranks of “upper-middle-income” states. It was big news in Tbilisi, the capital. But in July, officials did not have much to say when the country slipped back into the “lower-middle-income” ranks.
To understand the up-and-down tale of Georgia’s economic status, one needs to know how the World Bank classifies countries into income groups, a bit about Georgia’s 2002 and 2014 censuses, Georgia’s fluctuating exchange rate, and what country classifications are used for in practice.
To start, the World Bank measures economic status primarily by relying on gross national income (GNI) per capita, which is composed of GDP, as well as incomes flowing to the country from abroad, including interest and dividends. To make these calculations, the Bank uses something called the Atlas method, which accounts for fluctuations in the exchange rate using a three-year, inflation-adjusted average of rates.
Thresholds for each income group change slightly every year based on inflation. In the most recent year, countries with less than $1,005 in GNI per capita were designated low-income countries; those with GNIs from $1,006 to $3,955 fell into the lower-middle-income group; $3,956 to $12,235 were upper middle income; and those with $12,236 and above attained high-income status.
Georgia is not the only post-Soviet country to experience a downgrade in recent years due to exchange-rate woes and other factors. Russia, for example, moved down to upper-middle-income status in 2016 after three years in the high-income group. Meanwhile, Azerbaijan, which is grappling with a severe downturn due to the global drop in energy prices, is at risk of demotion to lower-middle-income status next year. And Kyrgyzstan and Tajikistan appear poised to slip back into the lower-income category.
GNI per capita is a population-based measure. That means that as the number of people decreases, the figure increases. For this reason, the 2014 census made Georgia an upper-middle income country. This fact stems from Georgia’s population size between 2002 and 2014 being estimated using the 2002 census. In 2002, the Georgian government carried out its first census since the last Soviet census in 1989. The census’ final population count is believed to have heavily overestimated the population at about 4.4 million citizens. Between censuses, the population data is updated using birth and death registries. These too had problems, showing that Georgia’s population was growing steadily.
In contrast to the 2002 census, the 2014 census was more rigorous. It showed a 17% smaller population figure than the Georgian National Statistics Office had estimated for 2014. This meant that the per capita figures for GNI jumped, pushing Georgia into upper-middle income status. Notably, estimates of GNI per capita which use more realistic population figures for the years between 2002 and 2014 suggest that Georgia had likely crossed the upper-middle-income threshold in 2013.
Even though the Atlas method takes into account fluctuations in exchange rate, GNI per capita is ultimately denominated in dollars for the World Bank’s calculations. In Georgia’s case, the lari has dropped from around GEL 1.7 to the dollar in early 2014 to about GEL 2.4 to the dollar at the time of this writing. The value of the lari was even lower for a time. In practice, this has decreased Georgia’s GNI per capita figures to the point of knocking the country into a different income category.
Against the backdrop of population estimate revisions and fluctuating exchange rates, Georgia’s economy has been growing, albeit very slowly for a developing country in recent years. Georgia’s economy grew at an average rate of about 5.9 percent from 1995-2013; since 2014, it has grown at an average rate of 3.4 percent.
The exchange rate fluctuations are hampering growth prospects. For one, rate volatility makes it harder for businesses to predict costs. In addition, many Georgians have dollar-denominated loans, while their incomes are in Georgian lari. Although nominal salaries have slightly outpaced inflation, they have not kept pace with the decline in the Georgian currency’s value. Hence, debt payments consume a rising share of income for those trying to pay off dollar-denominated loans. The Georgian government and National Bank are addressing this situation via a program that subsidizes the conversion of foreign-currency loans into Georgian lari at a favorable rate.
While Georgia’s income group status has more to do with how the statistic is calculated than the actual state of Georgia’s economy, the changes have had clear implications. For instance, the Global Fund – an organization that has provided over 100 million dollars to Georgia over the years to combat tuberculosis and AIDS – has different rules on aid for lower-middle-income and upper-middle-income countries. Meanwhile, a Brookings Institution study suggests that upper-middle-income countries receive aid more often in the form of credits (i.e. loans) than grants when compared with lower-middle-income countries.
Some development organizations explicitly change lending terms when a country moves from lower-middle to upper-middle income status, although the World Bank itself does not. Hence, Georgia’s downgrading may have a silver lining, potentially leading to more aid opportunities.
But downgrading also has significant downsides. In political terms, it is not good news for incumbents because it fosters an appearance among the population that the country is moving backwards. It also can impact the decisions of potential foreign investors. The demotion in status is unlikely to make Georgia a more attractive investment destination.

Editor's note: 
Dustin Gilbreath is a Policy Analyst at CRRC-Georgia.
Dustin Gilbreath is a Policy Analyst at CRRC-Georgia.