SURGE IN ELECTRICITY POWER PLAYS IN KYRGYZSTAN

C O N F I D E N T I A L SECTION 01 OF 03 BISHKEK 000966 SIPDIS SIPDIS DEPT FOR SCA/CEN (GEHRENBECK),SCA/FO FOR DEUTSCH E.O. 12958: DECL: 07/27/2017 TAGS: ECON ENRG PREL KG SUBJECT: SURGE IN ELECTRICITY POWER PLAYS IN KYRGYZSTAN BISHKEK 00000966 001.2 OF 003 Classified By: Charge d'Affaires Lee Litzenberger for Reasons 1.4 (b) a nd (d) ¶1. (C) Summary: With President Bakiyev expected to sign legislation opening the unfinished Kambarata hydroelectric stations to foreign investment soon, Minister of Energy Chudinov is seeking outside advice in implementing new legislation and related reforms in the electricity sector. U.S. firm AES appears to be withdrawing from the "political" battle with Russian and Kazakh interests for a stake in Kambarata, from which electricity could supply growing, long-term demand in southern Kazakhstan. A significant redirection of power exports to Kazakhstan, combined with interest by aluminum firms in establishing power-hungry smelters in Kyrgyzstan, could limit power available for the CASAREM project. AES is still exploring options to support the CASAREM project, but is also eyeing other targets to include the Bishkek thermal power plant and the northern Kyrgyz electricity distribution grid. The outcome of the planned Kabul CASAREM gathering this autumn may determine the pace of electricity sector developments in Kyrgyzstan. End summary. Legislating Power Reform -------------- ¶2. (U) After contentious debate, legislation permitting foreign involvement in the Kambarata hydroelectric projects cleared the Kyrgyz parliament in June. Despite accusations that parliamentary votes had been miscounted to ensure passage, President Bakiyev, who favored the legislative package, is expected to sign the laws into force soon. While Kyrgyz officials have previously indicated that foreign firms could invest in new power generation facilities and certain existing infrastructure such as the Bishkek thermal power station, this legislation opens up the two unfinished Kambarata hydroelectric stations to outsiders while keeping the existing, operational hydroelectric facilities in state hands. (Note: The two Kambarata facilities, which were only 10% and 30% completed at the time of the Soviet Union's collapse, have remained virtually untouched over the past 15 years and require an estimated $2.3 billion in investment. End note.) ¶3. (SBU) The legislation, however, lacks implementing guidance. Kambarata's future development may include joint stock companies, but the size of the Kyrgyz government stake has not been fixed. Additional language mentions a management concession for Kambarata. Minister of Energy, Industry and Natural Resources Igor Chudinov has approached USAID for possible assistance in formulating implementing language in the coming months. USAID is also attempting to arrange, in conjunction with Chudinov's planned participation at an August meeting regarding the Central Asia South Asia Regional Energy Market (CASAREM) initiative in Montreal, a visit to the United States for exposure to U.S. power infrastructure operations. Russians and Kazakhs Claim Kambarata -------------- ¶4. (SBU) Prior to the passage of the Kambarata legislation, Russian and Kazakh interests jockeyed for stakes in the renewed Kambarata project. Even with a Russian-financed Kambarata feasibility study in the works, the jousting will likely continue. Marat Kozhakhmetov, an AES regional representative, told emboff July 24 that given the significant Russian and Kazakh interest, AES no longer wants to "interfere in a political deal" over Kambarata. Risks to CASAREM? -------------- BISHKEK 00000966 002.2 OF 003 ¶5. (C) While Kyrgyz officials remain supportive of the CASAREM project, Kambarata developments and industrial proposals could divert electricity supplies from potential future customers in South Asia. Kyrgyzstan has auctioned off its summer electricity surplus to Kazakhstan at rates of 1.5-1.6 cents per kilowatt hour. Kyrgyz National Grid Deputy General Director Medetbek Aitkulov told emboff July 20 that Kambarata's ownership structure will be the key to determining the direction of power exports from Kambarata. Both Aitkulov and AES's Kozhakhmetov advised emboff that southern Kazakhstan will require imported power for the foreseeable future. A secure supply of cheap Kyrgyz electricity, however, could fill that void. ¶6. (C) Aluminum smelters may also absorb Kyrgyz electrical output. Both U.S. firm Alcoa and Russian firm Rinko Holdings have discussed setting up Kyrgyz smelting operations. (Note: The Kyrgyz National Grid's Aitkulov disclosed to emboff that President Bakiyev specifically wanted Alcoa to review options in Kyrgyzstan. End note.) A visiting Alcoa team told emboff July 18 that Alcoa would consider paying for Kyrgyz electricity from hydroelectric facilities above the existing marginal kilowatt per hour cost. However, both Alcoa and Rinko have suggested building their own power generation facilities to support smelting operations. Alcoa's Vice President for Energy Marc Pereira told emboff that Alcoa would discuss the prospects for Kyrgyz electricity supplies with AES. However, AES's Kozhakhmetov doubted that AES and Alcoa could reach a mutually acceptable pricing agreement. AES Considers its Options -------------- ¶7. (C) Kozhakhmetov sketched out AES's current options in Kyrgyzstan. The first option involves buying the Bishkek thermal power station in conjunction with either a guaranteed tariff of 4-5 cents or a management concession for a hydroelectric facility. The second option requires a pricing agreement with Afghanistan or Pakistan in the 8-9 cents range under CASAREM. Under this option, AES would then construct a coal-fired power generation facility in Kyrgyzstan. Kozhakhmetov reasoned that consistent year-round demand in South Asia would require a non-hydroelectric source for power. As Kyrgyz authorities are planning to permit the privatization of Severelectro, the power distribution company supplying northern Kyrgyzstan, AES is contemplating a bid for this company as well. ¶8. (C) Kozhakhmetov argued that AES has not abandoned plans for a transmission grid to supply electricity to South Asia. He said an AES pre-feasibility study covering the length of the 2,300 kilometer Almaty-Peshawar route determined that the Kyrgyz portion, some 970 kilometers, alone required nearly $1 billion in investment. AES packaged this proposed outlay with Kyrgyz guarantees, assistance or a management concession for hydroelectric facilities for Kyrgyz consideration. Kozhakhmetov reported that Kyrgyz officials replied that management concessions were not possible for the next 3-4 years. He believed that AES would make some critical decisions later this year regarding its operations in Kyrgyzstan after the planned Kabul CASAREM meeting. Comment -------------- ¶9. (C) In contrast to earlier reforms which kept infrastructure in state hands, the Kyrgyz government has now opened the electricity sector to the private sector. Given sensitivities regarding the sector, Minister Chudinov's endorsement of continued reform and rationalization of electricity tariffs must enjoy presidential-level support. Chudinov's openness to outside advice through CASAREM, USAID's REMAP initiative and other mechanisms should be BISHKEK 00000966 003.2 OF 003 supported. While the multi-year Kambarata project may currently be within the grasp of Kazakh and/or Russian interests, AES's designs on the Bishkek thermal power facility and the distribution company could have a more immediate impact on the continued success of the reform agenda. Forward momentum emanating from the Kabul CASAREM meeting will likely signal an increased level of activity by AES and other actors in the Kyrgyz electricity sector. LITZENBERGER