Small and medium enterprises have hindered access to capital almost on a worldwide scale (Abraham, Schmukler, 2017). This phenomenon is called a capital, financing or McMillan gap (Frost, 1954). In order to counteract this market inefficiency, governments establish various public aid mechanisms aimed at facilitating
SMEs access to external funds.
Poland developed quite unique public aid mechanism, where loans, guarantees
and seed capital are provided to a significant extent by various non-profit organisations or entities established by the central government agencies (i.e. Bank Gospodarstwa Krajowego – BGK) or local governments. These organisations services
often exceed financing and include training and advisory services, which are usually financed from the EU and national budgets.
The book which we are pleased to offer to the reader discusses the problem of
financing small and medium-sized enterprises (SMEs) and the role played by loan
and guarantee funds in minimising their capital gap.
Loan funds tend to provide services to SMEs that focus their business activity
on the region preferred by a fund (usually the one where the fund has its headquarters). To qualify for financial support, SMEs must pay their tax and social
insurance obligations in a timely manner and avoid all types of business activity
that might be perceived as environmentally harmful or unethical (i.e. related to
gambling, tobacco production etc.). The range of eligible loan purposes includes
investment projects, operating capital, or a mix of both.
Guarantee funds issue guarantees upon the consideration of the risk of their potential client becoming insolvent. Such funds often assist their customers handling
bank procedures, provide training, and subsequently monitor them to ensure
smooth cooperation with banks. Guarantee funds issue guarantees for loans provided by banks and non-banking institutions that signed cooperation agreements
with them, which limits the borrowers’ options for choosing the lender.
As mentioned before, in addition to grants, non-bank loans and guarantees
are an essential mechanism the SMEs’ capital gap reduction in Poland backed by
EU funds. It results from the fact that the European Union has decided to reduce
the amount of directs subsidies granted to SMEs in favour of financial instruments such as loans, guarantees and venture capital between 2014 and 2020. The
8 Introduction
argument in favour of this decision was low effectiveness and negligible leverage
of subsidies, as well as cases of misuse of grants. Entrepreneurs attempted to adapt
their needs to the range of projects supported by the EU so that they were eligible
for EU funding.
The effects of loan and guarantee funds are known (Beck et. al., 2010), but there
is a lack of information on the effectiveness of the use of public funds by them. An
assessment of the financial sustainability of SME support organisations is necessary to minimise the loss of public funds used in an inefficient way. The reliance
of loan and guarantee funds on government and EU grants makes it necessary to
assess the costs and benefits of public support for such funds. Furthermore, it is
important to determine what factors influence the performance of the loan and
guarantee funds so that their assessment in different countries and regions takes
into account performance constraints. Existing research results focus on assessing the impact of the use of loans and guarantees by entrepreneurs and the scale
of their use (Cowling, Mitchel, 2003; Cowling et al., 2018; Dvouletý et. al., 2019),
without information on how organisations providing non-bank loans and loan
guarantees deal financially and to what extent they depend on external financing.
Taking the above into consideration, the following research questions need to
be asked:
1. What are the business models of loan and guarantee funds in Poland and
have they evolved over time?
2. How stable are the loan and guarantee funds? Is it likely that they will become
financially independent? What changes and what kind of support from the
central government would they need to continue their business in the long
term (after the EU funding becomes unavailable)? How do different elements
of business models (including the width of value proposition, the quality of
information channels and cooperation with partners or possessed resources)
affect the stability measures of loan and guarantee funds in Poland?
3. What is the impact of the level of regional development on the stability and
efficiency of loan and guarantee funds in Poland?
The questions are very important considering the unfavourable events in the
market, including a weakening of the banking sector after the financial downturns
(financial crisis 2008, the influence of Brexit on the EU economy, coronavirus crisis 2020) that may result in lower values and numbers of loans for the SME sector,
more stringent lending criteria and refusals to finance riskier companies (small
and micro organisations). The research questions translate into research objectives
presented below.
The first objective is to identify and analyse business models of loan and guarantee funds in Poland. It also covers the study of the loan and guarantee funds
business models over time. The mechanism of functioning of guarantee funds in
Poland sets restrictions on their business models. These restrictions may affect or
even distort our results – loan and guarantee funds have limited possibilities to
Introduction 9
adjust their offer (supply) to potential clients’ preferences (demand). The parameters of the offer of financial instruments (target group, repayment period, interest
rate) are to a large extent determined by the body providing capital to the fund
for the programme. According to the Polish Association of Loan Funds, granting capital for financial instruments in the EU Financial Framework for the years
2014–2020 with the use of the tendering system further aggravated this problem.
The second objective of the research is to assess the influence of business models of loan and guarantee funds on their stability. Currently, loan and guarantee
funds mainly use financing regional operational programmes, funds from Bank
Gospodarstwa Krajowego and JEREMIE (Joint European Resources for Micro to
Medium Enterprises) initiatives. If in the following years the inflow of EU funds
for the distribution of loan and guarantees is lower, it will be necessary to modify
the business models of loan and guarantee funds to continue the stimulation of the
SMEs sector development. There are many market signals that raise concerns, such
as the weakening in the banking sector. The question that needs to be answered
is whether the operating organisations offering financial support for SMEs have the
capacity for long term development (an increase of the loan share), whether they
may be financially independent and/or what changes and support from the governing authorities they require to continue their activities in the long term (assuming no access to EU funds).
The third objective of the research discussed in this book is the assessment of the
impact of the level of development of the region – as indicated by (1) the value of
fixed capital per capita in the region, (2) the number of enterprises per 1,000 inhabitants weighed by size category, (3) the registered unemployment rate, (4) the average
monthly disposable income per capita, (5) the share of protected areas in the total
area of the region, (6) the saturation with expressways and highways and (7) the
number of public benefit organisations per 1,000 inhabitants – on the effectiveness
of aid schemes for SMEs (measured by the number and value of guarantees granted
and the financial performance of guarantee institutions) and their sustainability.
The following research methods were used to achieve the goals:
1) analysis of regulations, information on websites of loan and guarantee funds
in order to collect information on their business models,
2) analysis of the content of financial statements of organisations operating
loan and guarantee funds, in order to assess their effectiveness and stability,
3) regression analysis, structure analysis,
4) in-depth interviews with one director of a loan fund and the director of
a guarantee fund,
5) a focus study that clarified the results of previous steps of our research, and disclosed additional factors influencing the business models of loan and guarantee funds.
The book is divided into five chapters. Their structure is described in details
below.
10 Introduction
In the first chapter, based on the literature study, we presented the definitions
of the SMEs capital gap and the approaches provided by researchers to measurement, analysis and interpretation of this gap. This chapter also covers an overview
of regional growth and development theories, used later in chapter 5.
In the second chapter, we present research on the capital gap in Poland and the
role of loan and guarantee funds in closing it. Our research shows that the value
of loans and credits guaranteed by guarantee funds was increasing in the analysed
period, thus reducing the SMEs’ capital gap. However, at the same time, we find
that the potential of the guarantee and loan funds is still underexploited. Moreover,
the analysis also shows that loan and guarantee funds are changing their business
models, focusing their activities not on supporting SME investments but on operational support, e.g. by allowing them to participate in tenders and by guarantying
contracts with international customers.
In the third chapter, we describe, basing on the results of focus research and indepth interviews, the process of establishing loan and guarantee funds and evolution of their business models since their inception in the early 1990s. The provided
analysis shows that loan and guarantee funds modified and often enriched almost
all their business model elements.
In the fourth chapter, we describe the organisation of loan and guarantee
schemes and funds in nine other European countries to illustrate the variety of
guarantee schemes within Europe. France, the United Kingdom, Turkey, Austria,
the Czech Republic, Germany, Hungary, Slovakia and Italy are included in the
analysis. We discuss various aspects of the organisation of loan and guarantee
schemes in these countries compared to the system functioning in Poland. It provides a bigger picture of guarantee and loans distribution mechanisms.
In the last, fifth chapter, we analyse with the use of statistical methods, the performance of loan and guarantee funds in Poland. We answer the research questions relating to the stability of loan and guarantee funds and the relationship between the level of regional development and their performance. One of our most
important conclusions is the negative influence of grants received by the loan and
guarantee funds in the previous year on their stability. A possible explanation is
the following.
The reason for this can be the limitation of the range of decisions that managers
of the funds can take to adjust their offer to the expectations of SMEs. The necessity to fulfil the requirements from grant agreements (limiting the range of clients
and type of instruments) does not allow loan and guarantee funds to build long
term relationships with their clients. At the same time, we conclude that there exist regional differences in results achieved by loan and guarantee funds. However,
the negative correlation between number and value of granted guarantees with the
value of fixed assets held by entrepreneurs indicates the appropriate allocation of
state and UE aid by directing guarantees to entrepreneurs who do not have sufficient collaterals for bank loans.
Introduction 11
The findings of our study fill a research gap in assessing the effectiveness of SME
support schemes on the part of the guarantee institutions and thus on the cost side.
The conclusions of the research discussed in the book are important for researchers, financial experts and economists, but also for politicians making decisions
affecting the development and growth of SMEs and spending government funds.
The research is financed by the National Science Centre in Poland and is part
of a project, entitled “Financing the development of loan and guarantee funds”
– grant number 2016/23/B/HS4/00348.