LIBERIA: GRAPPLING WITH THE ELECTRICITY SECTOR

UNCLAS SECTION 01 OF 03 MONROVIA 001190 SIPDIS SIPDIS DEPARTMENT PLEASE PASS OPIC FOR JOHN SIMON, ROBERT DRUMHELLER, DULCE ZAHNISER TREASURY FOR JOHN RALYEA AND RICHARD HALL DEPARTMENT FOR AF/W AND INR/AA FOR BERNADETTE GRAVES E.O.12958: N/A TAGS: ENRG EINV EAID LI SUBJECT: LIBERIA: GRAPPLING WITH THE ELECTRICITY SECTOR ¶1. SUMMARY: Easing the dire shortage and addressing the cost of electricity is a top priority of Liberian President Ellen Johnson Sirleaf's government but balancing speed with a prudent strategy is a challenge. The GOL believes the best solution is developing Liberia's abundant hydroelectric potential, but that will take 5-10 years. Currently Monrovia, with a population estimated at 1.5 million people, receives 2.7 megawatts of power from diesel generators under the Emergency Power Project (EPP) supported by the USG and other international partners. The EPP is a stopgap measure designed to meet the political imperative of restoring some light to Monrovia quickly. While there is consensus on the need for private-sector participation in the power sector, the role of the crippled Liberia Electricity Corporation (LEC) needs to be clarified. ¶2. The GOL has appointed the International Finance Corporation (IFC) as advisor on developing a strategy to address Liberia's long-term power needs. The IFC/GOL recently sought expressions of interest for a vertically integrated utility concession, and received eight responses. However, splitting the sector by having an independent power provider (IPP) handle generation, while donors concentrate on less commercially attractive aspects such as transmission, distribution and rebuilding the LEC, may be a more attractive option. There are no quick solutions, but the lack of reliable, sustainable power is a major constraint on Liberia's economic recovery. Although the Emergency Power Project is a commendable first step, Liberians will judge the success of this government in large part by its ability to provide broad-based access to affordable electricity. END SUMMARY REBUILDING FROM SCRATCH -------------- ¶3. Prior to the civil war, the state-owned LEC produced 209 MW of electricity, with 64 MW generated at the Mount Coffee hydroelectric dam near Monrovia, and the rest at turbine powered stations around the country. LEC served over 35,000 customers with a distribution system comprising 420 km of 64 kV lines and 800 km of overhead and underground 12.6 kV lines. Although many rural areas were never electrified, the pre-war grid included 10 manned and six unmanned 69 kV transmission substations plus stand-alone generators in nine major population centers. LEC was the only power utility in West Africa using American standard 120/208/380 volts - 60Hz. (Liberia has since moved to the 220-240v 50Hz European standard.) Major companies produced an estimated additional 197 MW of electricity prior to 1990. Power production facilities were completely looted and destroyed during the 14-year civil conflict and, except for the Emergency Power Program in parts of Monrovia, all electricity is now produced by point-of-use generators. A recent OPIC survey estimates current demand in Monrovia by the largest private consumers at over 12 MW. That does not include residential, non-profit or government consumption. EXPENSIVE, LIMITED, AND POORLY MANAGED -------------- ¶4. The LEC generates 2.7 MW under phase one of the donor-funded Emergency Power Project (EPP I) and expects to implement EPP II in February 2008 when additional diesel generators procured through a US$9,000,000 grant provided by Norway will be delivered. EPP II will increase power generation in Monrovia by 7 MW. The current LEC transmission and distribution system consists of 12 km of medium-voltage and 18 km of low-voltage network around Monrovia. The system follows major roads, serving 580 customers with a focus on schools and hospitals. The European Commission has funded rehabilitation of three transmission substations and agreed to rebuild the high/medium voltage transmission line around Monrovia, although that project has been delayed. ¶5. The cost of diesel-powered electricity under the EPP is US $.34 per Kilowatt-hour, a prohibitive price for many consumers. A study by USAID-funded International Resource Group (IRG),which provides policy, legal and regulatory assistance to the GOL, found that people actually spend more on electricity substitutes (candles, batteries, kerosene) than they would for even relatively expensive electricity from the grid. IRG is implementing an innovative metering system that allows consumers to purchase small amounts of electricity as needed using pre-paid cards. Assuming private investment in power generation, donors could channel funds to rebuilding LEC's management and technical capability and refurbishing the transmission and distribution system. ¶6. As with its infrastructure, LEC's human resources were devastated by the war. For example, LEC management is concerned about the gap in electrical engineers as the pre-war generation retires. IRG is MONROVIA 00001190 002.2 OF 003 working with the utility company to institute effective management and engineering capability. The initial focus was on boosting collections and countering the culture of impunity regarding electricity theft ("it's from the government; it's free"). With collections now approaching 90%( up from 67% in April),IRG and the LEC are working to counter theft, currently at around 10% (down from 17% in June). Improving collection ratios and reducing theft will prove to private power providers that Liberia could be a viable market. Eventually, as the system expands and collections increase, LEC would become a viable institution. BRIDGING THE GAP FROM DIESEL TO HYDRO -------------- ¶7. The EPP is a stopgap measure; the long-term answer lies with Liberia's abundant hydroelectric potential. Rehabilitating the Mount Coffee hydroelectric power station near Monrovia is the obvious first step but requires major investment and at least 5-10 years. Chinese investors have expressed interest in rebuilding Mount Coffee through a build operate and transfer (BOT) program. However, the GOL has decided to await results from the U.S. TDA-sponsored feasibility study before making a decision. Japanese investors have also expressed interest in providing 10 MW of power generation equipment. In the medium term, a thermal plant built by an independent power producer is the most viable option. This approach is complicated by the fact that there is, on average, an 18-month lead time for Heavy Fuel Oil (HFO) power plants in the open market. ¶8. The government has appointed the IFC as its advisor to implement a private sector-led solution to develop the power sector. On August 31, the IFC in collaboration with the Ministry of Lands, Mines and Energy received eight Expressions of Interest (EOI) to develop and manage the power sector of Monrovia (construction of a new power plant, new distribution lines within the city of Monrovia, connecting new customers, hiring and training of staff and metering and collection of electricity sold). The initial suggestion for the tenure of the vertically integrated utility concession ranged from eight to thirteen years. ¶9. On September 20-21, the GOL/IFC held a meeting in Liberia for all companies who responded to the EOI that seven of the eight companies attended. The consensus from the majority of participants was that the proposed duration of the concession would be insufficient for the recovery of their investment and suggestions of 15-20 years were received. Only one of the companies expressed an interest in the IFC's fully vertically-integrated IPP approach. The IFC will take the feedback from this investor's forum and refine its suggested structure for the concession. ¶10. Sustaining an IPP relies on commitments from creditworthy consumers. One proposal, by OPIC, is to separate power generation from power transmission and distribution. ArcelorMittal's $100 million mining investment will require a total of 75 MW of power at the port of Buchanan and at the mine site in the interior. Building a plant at Buchanan with heavy fuel oil offloading and storage facilities at the port and transmission lines to Monrovia and the Mittal mine site in Yekepa would leverage Mittal's power requirements to provide power for other credit-worthy consumers (such as factories and embassies). The economies of scale of the larger plant would offset the cost of transmission and lessen costs associated with building separate plants in Monrovia and at the two Mittal sites. (Note: The port in Buchanan and the HFO facilities would need to be rehabilitated. End note.) A power generation project of that scale, without the requirement to provide transmission and distribution or manage the LEC, might well be more likely to attract private investment by an IPP. ¶11. All large consumers surveyed (including Mittal, the cement company, the brewery, the soft-drink bottling plant, and the U.S. Embassy) anticipate increased electricity consumption by 2010/11. All would embrace the opportunity to stop self-generating power and purchase from an IPP. OPIC has developed a creative strategy to guarantee payments from the large credit-worthy consumers to an IPP that could be leveraged to provide more affordable energy to a wider customer base. Although the cost of converting from 60Hz to 50 Hz is a factor, most consumers thought it would be cost-effective. WEST AFRICA POWER POOL: NOT YET AN OPTION -------------- ¶12. Liberia is a member of the West Africa Power Pool (WAPP),and has embarked on a joint US$9.5 million project, sponsored by the EU, to share power with the Ivory Coast along the common border. Participation in WAPP drove the decision to convert from American MONROVIA 00001190 003 OF 003 (120-127 v 60 Hz) to European (220-240v 50 Hz) generation. Eventually, Liberia could feed hydroelectric power into the WAPP grid, but it is not a short-medium term solution. ¶13. COMMENT: There are no quick solutions, but the lack of reliable, sustainable power is a major constraint on Liberia's economic recovery. Although the Emergency Power Project is a commendable first step, Liberians will judge the success of this government in large part by its ability to provide broad-based access to affordable electricity. END COMMENT. BOOTH