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An introduction from Joost Martens, p2 Basic consumer protection mechanisms p9
Director General of CI. are needed as the sector evolves.
Poor people are interested in financial p2 The state can take the initiative to p10
services. improve banking services.
Despite this, the formal financial services p4 Innovation and regulation. p12
sector is under-developed in Asia.
To avoid the mistakes of others, is there p13
Micro-credit is a worldwide phenomenon. p5 scope for a distinctively ‘African’
In Asia, where it originated in its current approach to financial services for
form, it is growing and becoming consumers?
mainstream.
Is money transfer by mobile phone the p14
Localised micro-credit schemes are often p8 new magic bullet?
linked to both production and
consumption. Towards universal access. p16
Page 1
An introduction from Joost Martens, Director General of Consumers
International.
Access to stable, secure and fair financial services is important for consumers
everywhere, as in Asia. Despite relatively low levels of coverage by the formal
banking sector in some parts of the continent, studies show that Asian consumers
are willing and able to access a variety of financial services. Commonly held myths
that poor consumers present too great a risk or are simply not interested in financial
services are not borne out by the facts. Indeed, the phenomenon of microfinance
has firmly taken hold in this region, where it entered a new lease of life during the
1970s. This phenomenon continues to grow, an achievement recognised by a
Nobel Prize in 2006. Nevertheless, despite demand, financial services for the poor
are still significantly under-developed, and consumers go under-served.
This briefing explores the latest developments in this ongoing story. It is produced
by Consumers International (CI) as part of celebrations for World Consumer Rights
Day 2010.
Page 2
This readiness to save is often masked by the low coverage of formal banking
institutions in Asian countries, as in other developing regions of the world.
While in Denmark, for example, bank account coverage is 99%, less than one third
of the populations of low and middle income countries are ‘banked’3.
For various reasons the formal sector has failed to respond to the needs, and
indeed the skills, of millions of people. Such skills are hugely underestimated. CI’s
publication, Our money, our rights: how the global consumer movement is fighting
for fair financial services, points out that poor families often have to display a
degree of financial sophistication which has not been fully appreciated in the past.
Portfolios of the Poor, a publication by the Financial Access Initiative, studied 250
poor households in India, Bangladesh and South Africa over one year5. The
researchers found that all the families dealt with at least four types of financial
instrument over the course of the year and rural households had total cash flows
equal to 10 to 30 times their end-of-year asset values. The sheer complexity of
transactions (involving savings clubs, banks, formal and informal institutions,
savings and debts) belies the idea of the poor as financially ignorant. In fact, the
sums of money are simply less than those transacted by wealthier people. Many
financial transactions take place in an informal way and the newly emerging
services, discussed below, are building on these basic skills in new ways.
Page 3
Poor people are not a bad risk.
Most poor consumers do manage their affairs responsibly. The very low rate of
default in microcredit is evidence of consumer capability. Loan repayment rates in
excess of 95% are the norm, and have remained so for at least a decade6.
Established in Bangladesh in the aftermath of the 1974 famine, by 2007 the
Grameen Bank had 7 million borrowers. Operating on the basis of small frequent
collections and no collateral requirement, the bank enjoys a repayment rate of 98%,
with $6 billion lent since 19767.
This record has been maintained in some of the world’s poorest locations. The
World Bank’s International Finance Corporation (IFC) has collated data from the top
150 microfinance institutions showing that, globally, the proportion of borrowers
who were 30 days behind on loans was 2-3% in 20098. While this figure represents
a slight increase on pre-financial crisis average arrears rates of 1.2%, levels still
remain very low.
• 185 million potentially bankable rural Indians do not have bank accounts and
less than 20% of rural Indians have access to formal financial services
• In Pakistan, only 6% of bank branch networks reach into rural areas
• In Nepal only 26% of households have a bank account, this level decreases
to 16% in rural areas
• 90% households in rural Laos do not have access to formal banking
services.
Page 4
Where access does exist for poor consumers, it is often restricted to bank deposits
only, and not to other financial services such as credit and insurance. For example,
according to an Asian Development Bank study, 82% of rural Indians do not have
insurance, and approximately 73% of 89 million farmer households in the country
have no access to formal sources of credit, despite the relatively successful
development of microcredit in South Asia.
The UN Blue Book Building inclusive financial sectors for development reported
that the risks of lending to poor consumers have been consistently overrated, and
this under-estimation has continued to act as a barrier to access.
The microcredit movement has built on these attributes to develop a new more
formalised and mutual local market.
Page 5
Its importance is increasingly recognised, and microfinance institutions (MFIs) are
evolving in the direction of the mainstream. The IFC gave 55% more every year to
microfinance lenders between 2004 and 2007, and at the global level microfinance
portfolios of private investment funds grew from $600 million in 2004 to $2 billion in
200611.
The Grameen Bank is the best known Asian MFI, but it is far from alone. In addition
to countless small local variants there are other international non-profit institutions
such as Accion International, which started giving micro-loans in 1973 in Brazil. It
now operates across North and South America, Africa and Asia, and has just
entered the Chinese market in the poor region of Inner Mongolia12.
Microcredit, however, should not be considered a magic bullet and has had to face
the problem of costs remaining relatively fixed regardless of the size of the loan,
meaning that charges for small amounts tend to be high.
For example, a survey of 48 MFIs in the Philippines found operating-cost ratios to
be as low as 10% for relatively large loans of $2,500 and over, but often in excess
of 50% for small loans of $200. Generally speaking, the cost of a $1,000 loan was
equal to about 15-20% of the loan amount. These actual results closely
approximated theoretical simulations, suggesting that the charges were simply an
accurate reflection of the costs to the lender, and not necessarily abusive13.
The response to high charges has often been to cap interest rates or other charges.
But where charges reflect the real costs of lending, capping rates may simply result
in cutting consumers off entirely from small loans, and forcing them to use informal
sources with far higher rates. This intrinsic problem was recognised by the G8 in
2004 when endorsing principles of microfinance, which express reservations about
interest-rate caps, although stopping short of outright opposition14.
Page 6
Despite the positive perception of microcredit in many quarters, it remains the case
that the financial landscape for poor consumers in Asia still leaves much to be
desired. Whether putting money aside or borrowing for an emergency, poor
consumers remain at a disadvantage in terms of limited access to formal financial
institutions. But where there is no formal service available, people find other options
to serve their needs in spite of possible risks. Family, friends, moneylenders and
pawnshops make up much of the informal sector, while MFIs constitute a semi-
formal sector of sorts. These services have become the ultimate resort for low-
income consumers and the most responsive to their needs. However, despite their
availability, these services have their limitations. Informal services are often
insecure, unreliable and can apply extortionate interest rates. MFIs also have
limitations, particularly in terms of the variety of products available. Their services
are dominated by short-term working capital loans and limited provision of voluntary
savings and micro-insurance.
However, these systems are well established and cannot be ignored. They play a
crucial role in the finances of poor consumers, who often cannot provide the
necessary documentation to meet the requirements of more formal institutions such
as government and commercial banks. Despite the problems associated with a lack
of economies of scale, microcredit is normally significantly cheaper than the
alternatives. For example, Cambodian MFI Hattha Kaksekar charges 2-4% per
month, compared with 20% from more traditional money lenders15. But concerns do
remain about the evolution of microcredit and its suitability. As the document
endorsed by the G8 indicates: ’micro-lenders should not pass on operational
inefficiencies to clients in the form of prices (interest rates and other fees) that are
far higher than they need to be’16.
Page 7
Localised microcredit schemes are often linked to both production and
consumption.
Microcredit can be used to help households and communities develop infrastructure
services such as drinking water. For example in Bangladesh, microfinance has
been used to help small scale providers in the water sector to supply consumers
not yet connected to a network17. The Community Organisation Development
Institute in Thailand uses microcredit for local water network development18.
At its simplest, microcredit can operate as loans to families for individual activities
such as rainwater harvesting, or initial connection charges to essential service
networks.
In rural areas the distinction between the consumer and producer is more blurred
than in cities. Many of the activities supported by micro-loans for small businesses
(such as baking, cloth dyeing and market gardening) often take place either in, or in
close proximity to the home. Micro-enterprises are consequently more likely to be
owned or managed by women than larger businesses. The UN estimates that
women make up 76% of microcredit customers around the world, while the figure
for Asia is 90%19. This means that support to small businesses can contribute more
directly to improving quality of life for families.
For these and other reasons it is disappointing that in China (PRC) small and
medium enterprises receive only 10% of bank credit even though their contribution
to GDP is 50%20.
Page 8
But credit is not the only financial service.
At a World Bank conference in 2000, it was reported that ‘there is a larger market
for savings products than for credit products, as has been demonstrated repeatedly
by microfinance organisations, which consistently report loan/deposit ratios of less
than 50%’21. Similarly, the above mentioned DFID/UNDP study points out that
financial services providers need to diversify. Savings and risk pooling (insurance)
are also essential services that are comprehensible to a wide range of consumers
and yet under-provided.
In Pakistan and Bangladesh, 97% of the population are excluded from insurance
(95% in Nepal)22. In India a ‘priority sector obligation’ is applied to insurance that
requires insurers to provide services to certain sectors, such as rural and socially
vulnerable populations. For example, in 2004 the obligation for life insurance in the
rural sector started at 5% of total policies in a company’s first financial year, rising
to 15% in its fifth year. For general insurance, the percentages rose from 2% to 5%
of gross premium income from the first to third years23. As coverage in India is
significantly higher than in other South Asian countries, some suggest that
government intervention of this nature has had a positive impact. However, it
should be noted that in some cases low levels of insurance taken out by poor
consumers may simply reflect the fact that they carry higher risks and are less
insurable.
Page 9
• increase consumer information (‘truth in lending’, for example)
• invest in financial literacy initiatives (ie consumer education)
• insist that the retail financial industry take steps to protect consumers (self
regulatory codes of conduct, for example)
• encourage the development of an independent regulatory oversight body
responsible for monitoring, reviewing and taking complaints.
Postal banks run serious losses in many countries but they do provide access. For
example, 89% of India’s postal bank branches are in rural areas. But ‘bricks and
mortar’ networks are slow to develop and branches are often far from much of the
population. However, governments at varying levels are starting to respond to these
problems. In India, state social payments are being made using ‘branchless
banking’ through mobile phones (see below)26. In Andhra Pradesh, it is planned for
some 30,000 village ‘self help’ organisations to be used as cash agents for
receiving social payments. In this way the state can help build up community based
financial services mechanisms, acting as a client rather than as a donor.
Page 10
Similar social programmes based on income transfer were developed in Indonesia
in 2007, Philippines in 2008, and Bangladesh and Pakistan in 2009. As this
phenomenon becomes more common, the state can establish itself in the roles of
client (paying money to consumers via banks) and promoter (sustaining bank
networks by promoting their use)27.
The UN Blue Book argued for state sponsorship over state provision, and this
position was endorsed by the G8 in 200428. This could take the form of regulation
(by credit bureaux, for example) to promote enhanced risk mitigation, and
enhanced transparency, involving legislation.
Credit bureaux.
Consumer organisations worldwide have campaigned for ‘responsible credit’ that is
neither indiscriminate nor too restrictive. The practice of assessing the ability of
consumers to repay loans is increasingly common, often through credit bureaus. In
some jurisdictions, such as France and South Africa, such credit checks are
mandatory.
Page 11
The introduction of this database resulted in a 10% refusal rate in applications for
credit29. While this will have left some consumers unable to borrow, reasonable
constraints on credit granting are advisable in order to avoid the recent fate of less
risk-averse markets, such as North America.
The state may require banks to provide basic bank account services as a condition
of licence. Since the Reserve Bank of India (RBI) introduced its policy to encourage
‘no frills’ bank accounts in 2005, public and private banks have opened 15.8 million
accounts. However, many of these accounts remain dormant due to the
inaccessibility of bank branches31.
Page 12
Third parties can be used by banks as ‘agents’ to collect and process payments.
However, the RBI regulation, embodied in the Business Correspondent and
Facilitator Circular issued in 2006, permits banks to appoint only a narrow range of
bodies, such as NGOs, co-operatives and post-office banks as agents. This has led
to a slower growth of branchless banking in India compared to a variety of other
evolving economies such as Brazil32 and Kenya.
Page 13
To some extent, recent innovations are a logical extension of traditional patterns of
remittances which are common throughout many parts of Asia. Remittances are
important both in and of themselves as a major support for families, and in terms of
the incentives they have provided for technological evolution. They can be saved to
a very high degree; an IMF sponsored study found levels of remittance saving
among families in different continents as high as 40%34.
Page 14
The success of mobile banking is attributed in large part to cost reductions.
However higher levels of access to mobile phones compared to bank branches in
many cases is also a significant contributing factor. In the Philippines, where the
adoption of mobile banking has been particularly rapid, the level of mobile phone
penetration (49%) significantly exceeds banking penetration (26%). In other Asian
countries, however, the levels are reversed (15% and 32% respectively in
Bangladesh for example)38. Mobile operators in the Philippines such as Smart and
Globe Telelcom/GXI have been allowed to design, market and extend payment
and transfer services to the mass market in a way that traditional banks have not
done39. This is particularly useful in reaching consumers on low incomes, as 26% of
Filipino mobile banking users live on less than $5 per day40.
Page 15
The potential for such development in Asia is clearly huge, but there are limitations
that should be taken into account. There are issues surrounding whether such
services should be bank-led (as in India, where registered MFIs and post offices
can be agents, but otherwise restrictions are tight) or whether non-bank actors can
take part (as in the Philippines, where mobile operators have taken the lead and
small retail outlets can also act as agents)42. There are also risks of new
monopolies developing. And the system will only be as comprehensive as the
extent of the mobile telephone network, which has been relatively slow to develop
in South Asia.
The root cause for long term optimism is that there are already about one billion
people on the planet with a mobile phone but without a bank account. More than
80% of the world’s population is now within range of mobile phone coverage. In
2009 the GSM association reported more than four billion mobile phone
subscriptions, with 80% of new connections in emerging markets and mostly by
lower income consumers43. To date, mobile banking has tended to by-pass
microcredit, but this may change. In Andhra Pradesh, India, SKS Microfinance has
developed a partnership with Andhra Bank that allows consumers to use
designated SKS agents to deposit money into Andhra bank accounts, and use their
mobile phones to repay their micro-loans. This demonstrates an interesting
combination of two modern innovations (mobile telephony and microcredit)44.
Page 16
Micro credit has done much to bring financial services to poor consumers and its
success is now attracting the interest of mainstream actors. Whilst investment
should help to further increase access for poor consumers, care must be taken to
ensure that the attributes of micro credit that made it attractive to poor consumers
in the first place are not lost.
Asia’s talent for new technology may help to bring financial services to poor
consumers. However, even in prosperous Singapore, the Currency Board’s
intention to create a cashless currency in 2001 proved disappointing, partly
because consumers remained attached to cash. Far from saving money as hoped,
the experiment, which is still under way, had cost the government $1billion by
200645. And some attempts to extend SIM card technology for other payments have
not worked due to disagreements among the business partners. New technologies
are always susceptible to fallible business judgements46.
New entrants to the financial services sector are needed, but under-regulation risks
allowing dubious practices to develop. This poses a major dilemma for many
countries in Asia. According to Larry Reed of MF Transparency:
“We have laid the groundwork attracting a new contingent of actors to enter the
industry but we have neglected to build any serious checks and balances
necessary to protect the poor...”47
Page 17
Given that it is still early days in terms of banking coverage for much of Asia, some
basic strategic orientations could be adopted from the outset. CI have argued for
the regulation of retail banking and investment banking as separate activities, even
though they can be provided by the same banks. Retail banking can perhaps be
viewed as a ‘public utility’ (not necessarily publicly owned but aimed at the general
public), to be encouraged through universal service programmes, which have been
successfully applied in the telecoms sector.
The argument for universal service to be fully integrated into future policy making is
aptly articulated in the UN Blue Book:
“We suggest that access to finance should be a central objective of prudential
regulation and supervision...the two traditional goals of prudential regulation: safety
of funds deposited in regulated financial institutions, and the stability of the financial
system as a whole, should be supplemented by a third goal: achieving universal
access to financial services.”
Consumers International Consumers International (CI) is the only independent global campaigning voice
24 Highbury Crescent for consumers. With over 220 member organisations in 115 countries, we are
London N5 1RX building a powerful international consumer movement to help protect and
United Kingdom empower consumers everywhere.
Tel: +44 20 7226 6663
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www.consumidoresint.org
Page 18
Endnotes
1. UN Blue Book Building Inclusive Financial Sectors for Development UN, 2006
2. Ian McAuley Globalisation for all-reviving the spirit of Bretton Woods, an examination of
developments in global financial markets Consumers International, 2003
3. Nimal A Fernando Low income households access to financial services: International
experience,measures for improvement and the future Asian Development Bank EARD
special studies Oct 2007
4. G Ivatury & I Mas The early experience with branchless banking Consultancy Group to
Assist the Poor (CGAP) Focus Note (FN) no 46, April 2008; M.Pickens, D. Porteous,
S.Rotman Scenarios for branchless banking in 2020. CGAP FN no 57, October 2009
5. Daryl Collins, Jonathan Murdoch, Stuart Rutherford, Orlanda Ruthven Portfolios of the
Poor: How the World’s Poor Live on $2 a Day Financial Access Initiative, 2009.
www.portfoliosofthepoor.com
6. The Economist, 21 March 2009.
7. I Kota Microfinance: banking for the poor, Finance & Development June 2007
www.imf.org/fandd
8. The Economist, 21 March 2009.
9. Fernando op cit
10. Leonard Mutesasira The microsave Africa experience World Bank, 2000
11. The Economist, 21 March 2009.
12. Accion launches microfinance operations in Inner Mongolia PR Newswire, 4 March 2010
13. Larry Reed The need for transparency www.mftransparency.org Accra, 2009
14. Building financial systems for the poor; Key principles of micro-finance CGAP 2004
15. Agence Francaise de Developpement Paroles d’acteurs (Key Players’ views) AFD, 2005
16. CGAP 2004 op cit
17. Unlocking the potential of the domestic private sector in WSS DFID/ WSP, London
2008; see also R Cardone & C Fonseca Financing and cost recovery IRC International
Water & Sanitation Centre, Delft 2003
18. Meera Mehta Meeting the financing challenge for water supply & sanitation. Water &
Sanitation Programme World Bank, 2003.
19. K. Boudreaux & T Cowen The micromagic of microcredit in Wilson Quarterly, winter
2008
20. Fernando op cit
21. Mutesasira op cit
Page 19
22. Fernando op cit
23. B. Ananth & N. Mor Regulatory aspects of universal access to financial services in India,
in Liberalisation & Universal Access to basic services OECD, 2006
24. UN Blue Book op cit
25. Fernando op cit
26. Ivatury & Mas op cit
27. Pickens et al, op cit
28. CGAP 2004 op cit
29. China Daily, 17 January 2006
30. Ivatury & Mas op cit
31. Pickens et al, op cit
32. Regulating transformational branchless banking: mobile phones and other technology to
increase access to finance CGAP FN no 43, January 2008
33. Ananth & Mor op cit
34. S Gupta, C Pattillo & S Wagh Making remittances work for Africa in Finance &
Development June 2007 www.imf.org/fandd
35. Gupta et al, op cit
36. CGAP FN 43 op cit; I Mas Realising the potential of branchless banking: challenges
ahead CGAP FN 50, October 2008
37. Pickens et al, op cit
38. Ivatury & Mas op cit
39. The role of mobile operators in expanding access to finance CGAP, May 2009
40. Ivatury & Mas op cit
41. I Mas & K Kumar Banking on mobiles: why, how, for whom? CGAP FN 48, June 2008
42. T Lyman, G Ivatury, S Staschen, Use of agents in branchless banking for the poor:
rewards, risks and regulation CGAP FN 38, October 2006
43. Pickens et al, op cit
44. Ivatury & Mas op cit
45. Pickens et al, op cit
46. I Mas & S Rotman Going cashless at the point of sale: hits and misses in developed
countries CGAP FN 51, December 2008
47. Reid op cit
Page 20