Workers arrive early in the morning at the One World Apparel factory in Port-au-Prince to assemble garments for export from Haiti. Credit: Ansel Herz/IPS

By Carey L. Biron
WASHINGTON, Aug 26 2014 (IPS)

Civil society groups from several continents are stepping up a campaign urging the World Bank to strengthen a series of changes currently being made to a major annual report on countries’ business-friendliness.

The World Bank is in the final stages of a years-long update to its Doing Business report, one of the Washington-based development institution’s most influential analyses yet one that has also become increasingly controversial. Critics now say the first round of changes, slated to go into effect in October, don’t go far enough."It’s a public relations exercise but with reasonably solid metrics behind it, and it’s the joining of these two things that makes Doing Business valuable in the policy world.” -- Scott Morris of the Center for Global Development

On Monday, a coalition of 18 development groups, watchdog organisations and trade unions called on the World Bank Group to take “urgent action” to implement “significant changes” to the Doing Business reforms. In particular, they are asking the bank to adhere more closely to detailed recommendations made last year by a bank-commissioned external review panel chaired by Trevor Manuel, a former planning and finance minister for South Africa.

“It looks like the flaws found by the Independent Panel chaired by Trevor Manuel will be ignored and its recommendations are nowhere close to being implemented,” Aldo Caliari, director of the Rethinking Bretton Woods Project at the Center of Concern, a Catholic think tank here, told IPS. “This is in spite of a wide chorus of civil society organisations and shareholders that supported them.”

While the World Bank’s mission is to fight global poverty, Caliari and others dispute whether the Doing Business report’s metrics are pertinent to poor communities. Others say they can be outright detrimental.

Both civil society investigations and the Manuel commission have suggested “how little relevance the areas and indicators have to the reforms that matter to small and medium companies in developing countries,” Caliari says. “They seem far more oriented to support operations of large transnationals in those countries.”

Such concerns stem from the outsized influence that the Doing Business report has built up, particularly in the developing world, since it was introduced in 2003. Reportedly, the report is used by some 85 percent of global policymakers.

The core of the report remains a simple aggregated ranking of countries, known as the Ease of Doing Business index. While based on a complex series of business-friendliness metrics, the high profile of the index results has inevitably led governments to compete among one another to raise their country’s ranking and, hopefully, strengthen foreign investment.

Yet a direct effect of this competition, critics say, is governments being pushed to adhere to a uniform set of policy recommendations. These include lowering taxes and wages and weakening overall industry regulation, thus potentially endangering the poor.

“[T]he report’s role is to inform policy, not to outline a normative position, which the rankings do,” the 18 groups wrote to World Bank Group President Jim Kim at the end of July. “Doing Business needs to become better aligned with moves towards greater country-owned and led development and an appreciation of the importance of a country’s circumstances, stage of development and political choices.”

In its report last June, the Manuel commission likewise urged the bank to drop the ranking system entirely, noting that this constituted “the most important decision the Bank faces with regard to the Doing Business report.”

Maintained but reformed

In response, the bank is reforming the methodology behind its ranking calculations. In part, this includes broadening its analysis to use data from two cities in most countries, rather than just one.

More broadly, the new calculations will constitute an effort simultaneously to continue to offer a relative score for each country but also to decrease the importance of the specific ranking.

“This approach will provide users with additional information by showing the relative distances between economies in the ranking tables,” an announcement on the changes stated in April. (The bank was unable to provide additional comment by this story’s deadline.)

“By highlighting where economies’ scores are close, the new approach will reduce the importance of difference in rankings,” the announcement continues. “And by revealing where distances between scores are relatively greater, it will give credit to governments that are reforming but not yet seeing changes in rankings.”

Some development scholars have pushed against the Manuel commission’s recommendations on the index, defending the need for the bank to maintain its aggregate rankings in some form.

“The Doing Business report isn’t a research exercise – it’s a policymaking tool. Because of the rankings it has a unique value, particularly for those countries that have a long way to go on economic reform,” Scott Morris, a senior associate at the Center for Global Development, a think tank here, told IPS after the Manuel commission’s report was published.

“Internally, it gives government officials something simple and targeted to latch onto, much more than a 500-page report would do. It’s a public relations exercise but with reasonably solid metrics behind it, and it’s the joining of these two things that makes Doing Business valuable in the policy world.”

Decent jobs created?

Yet others warn that the rankings themselves continue to be problematic, even in their new form.

The reforms are “not satisfactory, as the rankings will continue to influence the policy agenda of many developing countries despite their methodological flaws,” Tiago Stichelmans, a policy and networking analyst at the European Network on Debt and Development, told IPS in an e-mail.

“The problem of the rankings is the fact that they are based on regulatory measures in a single city (which is due to become two cities) for every country and are therefore irrelevant to many communities. The rankings also have a bias in favour of deregulatory measures that have limited impact on development.”

Of course, many would support the idea of tracking country-by-country policies aimed at encouraging industry to help bolster development metrics. But Stichelmans says this would require major changes, including a move away from the report’s current focus on reforms to the business environment.

“A shift from promoting low tax rates and labour deregulation to taxes paid, decent jobs created and [small and medium enterprises] supported would be a step in the right direction,” he says.

Ideas from NGOs have included indicators on corruption and human rights due diligence, Stichelmans continues, “but this must be accompanied by a drastic overhaul.”

For now, some of the newly announced changes are expected to be incorporated into the Doing Business report for 2015, slated to be released in late October. Other reforms, including some yet to be announced, will be introduced in future reports.

Edited by: Kitty Stapp

The writer can be reached at cbiron@ips.org

An external review panel is calling on the World Bank to institute sweeping reforms to its widely cited annual “Doing Business” report, including doing away with a controversial ranking of countries on a variety of business-friendliness metrics.

Doing Business is put out jointly by the World Bank and its private sector arm, the International Finance Corporation (IFC), both based here in Washington, and has become one of the bank’s most high-profile publications.

“Over the decade that it has been published, Doing Business has achieved a great deal of influence,” Trevor Manuel, South Africa’s planning minister and chair of the review panel, said Monday at the audit’s London unveiling.

“It is the leading tool to judge the business environments of developing countries, generating huge global media coverage every year. Several countries – such as Rwanda – have used it as a guide to design reform programmes.”

Indeed, reportedly used by some 85 percent of global policymakers, the report has built up particularly outsized influence in the developing world, as government officials have competed to raise their index ranking.

Yet for this reason, critics have for years warned that the report was pushing countries to lower taxes and wages and weaken overall industry regulation, thus potentially endangering the poor.

On Monday, the 11-member panel, appointed in October by World Bank President Jim Yong Kim, offered strong backing for several of these criticisms, even while it stated that the report should continue to be published. Most prominent among these is the recommendation to do away with the aggregated Ease of Doing Business Index, introduced in 2006.

“The decision to retain or drop the aggregate rankings table is the most important decision the Bank faces with regard to the Doing Business report,” the review states.

“Removing it would defuse many of the criticisms levelled against the report, but would diminish the report’s influence on policy and public discussion in the short term. In the long term, however, doing so may improve focus on underlying substantive issues and enhance the report’s value.”

The report also calls for greater transparency within the reporting and evaluation processes, and urges the bank to move the report’s “home” from the IFC to the research department within the bank proper. This latter recommendation could be particularly important given past criticisms that the Doing Business team has been reticent to implementing any major changes.

In an unusual public statement ahead of the review’s publication, President Kim suggested that plans were afoot to make just such a change. Yet he also sketched out a clear stance on the overall importance of both the report and its rankings.

“It is indisputable that Doing Business has been an important catalyst in driving reforms around the world,” Kim said on Jun. 7. (The bank declined IPS’s request for further comment Monday.) “I am committed to the Doing Business report, and rankings have been part of its success.”

Pure knowledge

The Ease of Doing Business Index rankings are based on metrics drawn from 10 regulations and other factors impacting on a country’s business environment. These include permitting and registering, ease of getting credit and electricity, the legal framework for enforcing contracts and protecting investors, how much tax a company must pay and how a government regulates cross-border trade.

These data points are then distilled down to a single score, allowing World Bank researchers to rank all 185 countries the report covers. The 2013 rankings awarded top scores to Singapore and Hong Kong and bottom scores to Chad and the Central African Republic.

Yet the review panel is now warning that such aggregation tends to cloud crucial country-level variations.

“It is important to remember that the report is intended to be a pure knowledge project,” the review states. “As such, its role is to inform policy, not to prescribe it or outline a normative position, which the rankings to some extent do.”

The past year has seen significant pushback against such criticism of the rankings, from prominent voices within the business community as well as certain development scholars.

“I think these rankings really do have fundamental value, as without the rankings the Doing Business report is just one more research exercise among many the World Bank does,” Scott Morris, a visiting policy fellow at the Center for Global Development, a Washington think tank, told IPS.

“It is because of the ranking that this report has unique value to those countries that have a long way to go on economic reform. Think of a small sub-Saharan African country with a reformist government in place – how does it get international leverage for reform or gain global attention for what it has accomplished? The rankings exercise, with its very high profile, is tremendously valuable in this regard.”

Regulatory opportunity

While the Doing Business report has received regular low-level criticism since its introduction, much of this was technical.

Over the past year, however, the issue has become far more politicised, with certain countries – led by China – complaining that the report was biased in favour of capitalist systems. Beijing has wanted the World Bank to halt publication of the report outright.

Meanwhile, humanitarian, labour and other progressive groups have also stepped up calls to reform the report. On Monday, many of these groups found the panel review to be surprisingly in line with their own worries about Doing Business leading to a weakening of regulation.

“After years of working with small and micro enterprises in developing countries, (we) know that helping people to set up and run a business is only half the job,” Christina Chang, lead economist for CAFOD, the Catholic aid agency for Britain and Wales, said in an e-mail to IPS. “Without a conducive regulatory environment, the odds are stacked against their success and many may never even get off the ground.”

CAFOD has actively pointed to problems with scoring on the report.

“Some indicators are linked with a drive to lower labour standards and corporate taxation rates,” the agency states. “These are not ideas that other publications of the Bank endorse, and they should not be in their most influential publication.”

Yet the panel’s recommendations, some groups contend, now offer a potent opportunity.

“The panel’s report is a defining moment for World Bank policy to reflect the needs of working people, and a balanced approach to labour market regulation,” Sharan Burrow, general-secretary of the International Trade Union Confederation, said Monday in a statement. “If adopted, the World Bank has the opportunity to reshape the relationship between working people, business and governments.”