Pension Funds, Banks, and Retail Investors Drive Diversification

As of June 2025, Tanzania’s domestic debt stock (excluding liquidity papers) rose to TZS 35,502.8 billion, marking a monthly increase of 0.9% (TZS 301.7 billion) and an annual growth of 11.1% (TZS 3,551.6 billion) from June 2024. This expansion aligns with the government's fiscal strategy to fund the 2.5% of GDP budget deficit, primarily through long-term Treasury bonds. Notably, no Treasury bills were auctioned in June, emphasizing the shift toward longer-term instruments. Domestic debt now accounts for approximately 29.3% of the total national debt (estimated at TZS 121.2 trillion), reflecting a balanced mix of domestic and external financing. The creditor landscape has evolved, with commercial banks holding 28.6%, pension funds 26.1%, and a rapidly expanding “Others” category (18.1%), highlighting increased participation from retail and non-traditional investors. This diversification reduces concentration risks and demonstrates growing confidence in government securities amid stable macroeconomic conditions.

Government Domestic Debt – Overview

The domestic debt stock, excluding liquidity papers (e.g., short-term instruments used for monetary policy), represents funds borrowed by the Tanzanian government from domestic creditors, primarily through Treasury bonds and bills. As of June 2025, the total domestic debt stock was TZS 35,502.8 billion, reflecting steady growth and a diversified creditor base.

• Total Domestic Debt Stock:
  • June 2025: TZS 35,502.8 billion
  • Monthly Increase: +0.9% from TZS 35,201.1 billion in May 2025 (an increase of TZS 301.7 billion).
  • Year-on-Year Increase: +11.1% from TZS 31,951.2 billion in June 2024 (an increase of TZS 3,551.6 billion).
  • Context: The year-on-year growth aligns with Tanzania’s fiscal strategy to finance the FY 2024/25 budget deficit (projected at 2.5% of GDP, per the African Development Bank) through domestic borrowing, particularly Treasury bonds. The absence of Treasury bill auctions in June 2025 (as noted in your earlier query) suggests a focus on long-term borrowing, contributing to the debt stock increase.
• Share of National Debt: Domestic debt constitutes approximately 29.3% of Tanzania’s total national debt (assuming total debt is ~TZS 121.2 trillion, combining domestic debt of TZS 35,502.8 billion and external debt of ~TZS 82.4 trillion or USD 32,955.5 million from June 2025). This reflects a balanced reliance on domestic and external financing.

Government Domestic Debt by Creditor Category

The domestic debt is distributed across various creditor categories, including commercial banks, the Bank of Tanzania (BoT), pension funds, insurance companies, BoT special funds, and others (e.g., public institutions, private companies, individuals). The following table summarizes the debt stock by creditor for June 2024, May 2025, and June 2025, with shares for June 2025:

Detailed Analysis by Creditor

1. Commercial Banks:
   • June 2025: TZS 10,161.5 billion (28.6% share).
   • Change:
     • Monthly: +0.2% from TZS 10,138.2 billion in May 2025 (TZS 23.3 billion increase).
     • Year-on-Year: +1.7% from TZS 9,996.1 billion in June 2024 (TZS 165.4 billion increase).
   • Share Trend: Declined from 31.3% in June 2024 to 28.6% in June 2025, indicating a reduced relative reliance on banks.
   • Context: Commercial banks are major holders of Treasury bonds (e.g., TZS 322.4 billion accepted in June 2025 auctions), reflecting their role as key financiers of government borrowing. The modest monthly growth suggests banks maintained stable investments, possibly due to high yields (14.50% for 20-year bonds, 14.80% for 25-year bonds). The year-on-year decline in share may reflect banks’ diversification into private sector lending or liquidity constraints, as noted in the interbank cash market’s TZS 2,873.9 billion turnover in June 2025.
   • Implications: Banks’ significant share (28.6%) underscores their systemic importance, but the declining share suggests a broadening creditor base, reducing concentration risks.
2. Bank of Tanzania (BoT):
   • June 2025: TZS 7,174.1 billion (20.2% share).
   • Change:
     • Monthly: +0.2% from TZS 7,158.2 billion in May 2025 (TZS 15.9 billion increase).
     • Year-on-Year: +8.2% from TZS 6,626.2 billion in June 2024 (TZS 547.9 billion increase).
   • Share Trend: Slightly increased from 20.7% in June 2024 to 20.2% in June 2025, reflecting steady BoT participation.
   • Context: The BoT’s holdings include government securities used for monetary policy operations or direct financing (e.g., overdraft facilities). The significant year-on-year increase aligns with the BoT’s role in supporting fiscal deficits, as seen in the TZS 270.2 billion deficit in May 2025. The BoT’s February 2025 report noted a TZS 140.8 billion reduction in domestic debt due to lower overdraft use, suggesting cautious central bank lending.
   • Implications: Rising BoT holdings indicate central bank support for liquidity management, but excessive reliance could blur fiscal-monetary boundaries, potentially affecting monetary policy credibility.
3. Pension Funds:
   • June 2025: TZS 9,265.7 billion (26.1% share).
   • Change:
     • Monthly: +0.7% from TZS 9,203.9 billion in May 2025 (TZS 61.8 billion increase).
     • Year-on-Year: +6.0% from TZS 8,744.9 billion in June 2024 (TZS 520.8 billion increase).
   • Share Trend: Increased from 27.4% in June 2024 to 26.1% in June 2025, remaining a major creditor.
   • Context: Pension funds (e.g., NSSF, PSSSF) are key investors in Treasury bonds due to their long-term investment horizons and need for stable returns. The oversubscription of June 2025 bond auctions (TZS 1,232.9 billion in tenders vs. TZS 638.7 billion offered) reflects strong pension fund demand. The World Bank notes pension funds’ growing role in domestic debt markets as a sign of financial deepening.
   • Implications: The steady share (26.1%) supports fiscal financing but ties pension fund liquidity to government debt, posing risks if debt servicing pressures arise.
4. Insurance Companies:
   • June 2025: TZS 1,843.0 billion (5.2% share).
   • Change:
     • Monthly: +0.2% from TZS 1,840.0 billion in May 2025 (TZS 3.0 billion increase).
     • Year-on-Year: +1.5% from TZS 1,815.7 billion in June 2024 (TZS 27.3 billion increase).
   • Share Trend: Stable at 5.7% in June 2024 to 5.2% in June 2025.
   • Context: Insurance companies invest in government securities for stable returns, but their small share reflects limited market participation compared to banks and pension funds. The stable share aligns with their conservative investment strategies.
   • Implications: The modest role of insurance companies limits their exposure to government debt risks but also restricts their contribution to fiscal financing.
5. BoT Special Funds:
   • June 2025: TZS 638.1 billion (1.8% share).
   • Change:
     • Monthly: +3.5% from TZS 616.3 billion in May 2025 (TZS 21.8 billion increase).
     • Year-on-Year: +98.7% from TZS 321.2 billion in June 2024 (TZS 316.9 billion increase).
   • Share Trend: Increased significantly from 1.0% in June 2024 to 1.8% in June 2025.
   • Context: BoT special funds (e.g., for specific development or liquidity purposes) have a small but growing role, possibly reflecting targeted government borrowing for priority projects. The sharp year-on-year increase suggests new fund allocations or reclassification of debt holdings.
   • Implications: The small share minimizes fiscal risks, but the rapid growth warrants monitoring to ensure alignment with fiscal objectives.
6. Others:
   • June 2025: TZS 6,420.4 billion (18.1% share).
   • Change:
     • Monthly: +2.8% from TZS 6,244.5 billion in May 2025 (TZS 175.9 billion increase).
     • Year-on-Year: +44.3% from TZS 4,447.2 billion in June 2024 (TZS 1,973.2 billion increase).
   • Share Trend: Increased significantly from 13.9% in June 2024 to 18.1% in June 2025.
   • Context: The “Others” category includes public institutions, private companies, and individuals, reflecting growing retail and non-traditional investor participation in government securities. The BoT’s efforts to deepen the domestic debt market, including retail bond issuance, likely drove this growth. The oversubscription of June 2025 bond auctions indicates strong demand from diverse investors.
   • Implications: The rising share signals increased domestic investor confidence and financial inclusion, but the heterogeneous nature of this category requires monitoring for credit quality and liquidity risks.

Observations and Trends

1. Commercial Banks’ Declining Share:
   • The share dropped from 31.3% in June 2024 to 28.6% in June 2025, despite a slight absolute increase (TZS 10,161.5 billion). This reflects banks’ cautious approach amid high lending rates (15.23% overall in June 2025) and competition from other creditors like pension funds and the “Others” category.
   • Implication: Reduced bank reliance diversifies the creditor base but may strain bank liquidity if government borrowing competes with private sector lending.
2. Pension Funds’ Steady Role:
   • The steady 26.1% share (TZS 9,265.7 billion) underscores pension funds’ critical role in financing long-term government borrowing, driven by high bond yields (14.50%–14.80%). The 6.0% year-on-year growth reflects their growing asset base and demand for secure investments.
   • Implication: Pension funds’ exposure to government debt links retiree savings to fiscal health, requiring robust debt servicing capacity.
3. BoT’s Growing Holdings:
   • The BoT’s 20.2% share (TZS 7,174.1 billion) and 8.2% year-on-year growth suggest active central bank support for fiscal deficits, possibly through bond purchases or liquidity facilities. The stable monthly growth (+0.2%) indicates controlled intervention.
   • Implication: Increased BoT holdings could support liquidity but risk monetary policy credibility if perceived as fiscal financing.
4. Rise of “Others” Category:
   • The 44.3% year-on-year increase (TZS 6,420.4 billion, 18.1% share) reflects growing participation from public institutions, private firms, and retail investors, likely driven by accessible bond markets and high yields.
   • Implication: This diversification enhances fiscal resilience but requires regulatory oversight to manage retail investor risks.
5. Stable Minor Creditors:
   • Insurance companies (5.2%) and BoT special funds (1.8%) maintain small, stable shares, reflecting limited but consistent participation.
   • Implication: Their minor roles limit systemic risks but also constrain their contribution to debt financing.

Insights and Implications

1. Diversified Creditor Base:
   • The spread across commercial banks (28.6%), pension funds (26.1%), BoT (20.2%), and others (18.1%) indicates a diversified domestic debt market, reducing reliance on any single creditor group. The rising “Others” share (18.1%) reflects financial deepening, as retail and non-traditional investors participate more actively.
   • Implication: Diversification enhances fiscal resilience but requires robust market infrastructure to manage retail investor risks and ensure liquidity.
2. Systemic Interconnectedness:
   • The significant shares held by commercial banks and pension funds (54.7% combined) tie the financial sector’s stability to government debt. A fiscal shock (e.g., delayed debt servicing) could impact bank liquidity and pension fund returns, as noted by the World Bank’s concerns about financial sector exposure.
   • Implication: Strong revenue performance (e.g., TZS 2,880.2 billion in May 2025, 3.1% above target) and prudent debt management are critical to mitigate systemic risks.
3. BoT’s Role in Financing:
   • The BoT’s growing holdings (TZS 7,174.1 billion, +8.2% year-on-year) suggest active support for fiscal deficits, possibly through bond purchases or liquidity facilities. This aligns with the absence of Treasury bill auctions in June 2025, indicating reliance on longer-term financing.
   • Implication: While supporting liquidity, excessive BoT involvement could raise concerns about monetary-fiscal coordination, potentially affecting inflation (3.2% in May 2025, within the 3%–5% target).
4. Growing Retail Participation:
   • The “Others” category’s 44.3% year-on-year growth reflects increased retail and institutional investor appetite, driven by high bond yields (14.50%–14.80%) and BoT efforts to promote bond market access. This aligns with the oversubscription of June 2025 bond auctions.
   • Implication: Expanding retail participation supports financial inclusion but requires investor education and market stability to prevent volatility.
5. Fiscal Sustainability:
   • The 11.1% year-on-year debt increase (TZS 35,502.8 billion) is moderate compared to the fiscal deficit (TZS 270.2 billion in May 2025). The IMF’s 2024 Debt Sustainability Analysis indicates a moderate risk of debt distress, with public debt at 45.5% of GDP in 2022/23, below the 55% benchmark.
   • Implication: Strong tax revenue (TZS 2,339.7 billion in May 2025, 4.1% above target) and controlled borrowing support sustainability, but rising debt requires careful servicing management, given external debt servicing absorbs ~40% of expenditures.
6. Economic Context:
   • GDP Growth: Tanzania’s 6.0% projected growth in 2025, driven by agriculture, manufacturing, and tourism, supports debt servicing capacity through revenue growth.
   • Monetary Policy: The BoT’s 6% Central Bank Rate in Q2 2025 and stable interbank rates (7.93% in June 2025) ensure liquidity, facilitating domestic borrowing.
   • External Debt Complement: Domestic debt (29.3% of total debt) complements external debt (70.7%, USD 32,955.5 million), balancing currency risks with local financing.