SCENESETTER: SECOND U.S.-TURKEY ENERGY WORKING

UNCLAS SECTION 01 OF 03 ANKARA 000027 SIPDIS EUR FOR DAS BRYZA DOC FOR CHERIE RUSNAK DOE FOR MICHAEL COHEN E.O. 12958: N/A TAGS: AJ ENRG EPET IZ TU SUBJECT: SCENESETTER: SECOND U.S.-TURKEY ENERGY WORKING GROUP REF: ANKARA 2123 ¶1. (SBU) Summary: Turkey remains the vital link in our strategy to bring gas from the Caspian Basin and Central Asia to Europe through a Southern Corridor. Russia's reckless action in cutting off gas to Ukraine (and subsequently Turkey and Europe) may help compel Turkey to make tough decisions that strike a balance between its own energy demands and commercially viable gas transit terms for the Corridor. The GOT believes Azerbaijan is unfairly blaming Turkey for inability to conclude a transit agreement. With a presidential trilateral meeting (Turkey-Azerbaijan-Turkmenistan) on November 29, Turkey solidified an intermediary role in warming Azeri-Turkmen relations and future negotiations to bring Turkmen gas to Europe. Turkey is seeking U.S. support and partnership for investments in Iraq's oil and gas sector. End summary. ¶2. (SBU) The second U.S.-Turkey Energy Working Group scheduled for January 16 in Ankara will be led by MFA Deputy Undersecretary Selim Kuneralp and will include high-level representatives from the Ministry of Energy, Turkish Petroleum Company (TPAO) and BOTAS (state-owned pipeline company). Points to Raise -------------- ¶3. (SBU) Recommend highlighting: -- Turkey and Azerbaijan appear close to concluding a gas transit agreement. Given the urgency of the situation, Turkey should move now to close a transit and tariff regime for gas to Europe. (para 6) -- The technical team from the U.S. Trade and Development Agency in Turkey this week will identify areas for cooperation in energy efficiency, renewables and other sectors. (para 7) -- Turkey and the U.S. should coordinate message to Turkmen President Berdimuhamedov: Turkmenistan stands to benefit tremendously from the investment dollars and technology that major Western companies can bring to developing Turkmenistan's oil and gas resources. (para 9) -- Solicit Turkish views on how to make the U.S.-Turkey-Iraq natural gas trilateral a more effective forum for Turkish and US development of Iraq's hydrocarbon sector. (para 10) -- Encourage high-level GOT representation at the Nabucco Summit to be held in Budapest, January 26-27. Likely Turkish Concerns -------------- ¶4. (SBU) The Turkish side could raise: -- Azerbaijan is in no hurry to solve the gas transit issue and Turkey cannot conclude an agreement with a disinterested partner. (para 6) -- Azerbaijan may decide to sell Shah Deniz Phase II gas volumes to the Turkey-Greece-Italy pipeline, thereby undermining the viability of Nabucco. What is the U.S. position on this? -- The EU proposal to conduct a one-year study of the Caspian Development Company (CDC) study may unduly halt momentum in negotiations with Turkmenistan for market access for Western oil companies. (para 9) -- Lack of concrete proposals to help Turkey attract additional financing into the energy sector, as discussed during the DOE Deputy Secretary Kupfer's visit in October. (para 8) Financial Crisis and Energy Demand Forecasts -------------- ANKARA 00000027 002 OF 003 ¶5. (SBU) The effects of the global financial crisis are beginning to take hold in Turkey. Factories are closing, exports in 2009 are expected to decline by 20 percent (and have already started falling) and unemployment is on the rise (officially at 10.2 percent but unofficially much higher). Growth in 2009 is expected to be flat at best and the GOT is pinning its hopes on a planned IMF agreement to calm markets and provide financing to the private sector. Since 2002, growth in the energy sector has outpaced economic growth and the GOT expects this trend to continue. Large investors in the energy sector like Sabanci are predicting 4 percent growth in energy demand for ¶2009. Keying off GOT official growth projections of 4 percent, Ministry of Energy officials cite 6-7 percent energy demand growth for 2009. The GOT believes Turkey faces electricity shortages as early as this year and natural gas shortages of up to 16 bcm by 2015. Part of the TDA Energy Assessment Mission is to analyze Turkey's forecasts for supply and demand in 2009. Transit Negotiations with Azerbaijan -------------- ¶6. (SBU) According to an MFA readout on the December 5 talks between Turkey and Azerbaijan on gas transit issues (reftel), the two sides were close to an agreement. Turkey lowered its original demand of 8 bcm for Turkish domestic consumption from Azerbaijan's Shah Deniz Phase II development to 4 bcm (a 50% drop). Turkey requested the flexibility to buy up to an additional 7 bcm in an emergency situation. The GOT thought Azerbaijan had agreed to this formula, only to be disappointed by the Azeri MOU sent following the meeting without these provisions. The GOT believes Azerbaijan is stalling the negotiations and unjustly blaming the current impasse on Turkey. Turkey is pressing for a transparent pricing formula that discounts gas sold to Turkey proportionate to its proximity to the gas source (i.e. netback pricing, Turks pay less than Austrians for Azeri gas.) According to the GOT, Azerbaijan insists Turkey must pay a "European price" without giving a definitive figure. U.S. Assistance to Turkey's Energy Sector -------------- ¶7. (SBU) As raised by DOE Deputy Secretary Kupfer in meeting with the PM, and the Foreign, Energy, and Treasury Ministers in October, the U.S. would like to assist Turkey in meeting its energy demand. A technical team from the U.S. Trade and Development Agency will be in Turkey January 11-17 to review GOT priorities and development strategies for energy efficiency, renewables and power plant rehabilitation. Following the visit, the team will recommend options for improving the investment climate and accelerating investment in the energy sector as well as opportunities for follow-on TDA technical assistance or studies. ¶8. (SBU) The GOT understands and appreciates the offer of U.S. government assistance, financing and other guarantees to attract U.S. private sector investment into Turkey's energy sector. However, they are skeptical that we can or will actually deliver. The GOT has not yet been briefed on U.S. Treasury efforts to coordinate an energy financing framework with the World Bank. They will recall pledges of assistance made during the Kupfer visit, including the possibility of up to 500 million in OPIC financing or insurance. Turkmen gas -------------- ¶9. (SBU) Turkey is pursuing an intermediary role between Azerbaijan and Turkmenistan in resolving the Serdar-Kapaz field dispute, delimiting the Caspian Sea border between the countries and bringing Turkmen gas to Europe. In particular, Turkey is encouraging Turkmenistan to link its offshore Block 1 platform with existing Azeri offshore-platforms in the Caspian Sea. President Gul sparked a three-way summit on ANKARA 00000027 003 OF 003 energy issues Nov 29. Turkey is also considering favorably the EU concept for a Caspian Development Corporation (CDC),a consortium of private companies to negotiate the purchase of large volumes of Turkmen gas, but fears that a World Bank study would delay CDC implementation and opening of Turkmen gas by at least a year. Iraq gas -------------- ¶10. (SBU) Turkish Petroleum (TPAO) signed an MOU with Shell to form a consortium to bid on oil and gas fields that will be offered for tender by the GOI. Turks believe the U.S. can influence the outcome of Iraqi tenders and are looking for our support on future bids in Iraq. Turkey has continually asked for our support of a gas export pipeline that would run parallel to the existing Kerkuk-Yumurtalik oil pipeline. We have tried to promote cooperation through the U.S.-Turkey-Iraq Natural Gas Trilateral Working Group (WG),a subgroup of the Iraq Neighbors process, but the GOI asked that the trilateral become a bilateral (Turkey-Iraq). Embassy Baghdad suggested another idea: the WG expand its membership to the EU Commission and/or other interested parties. We should seek GOT ideas on the best way forward. Visit Ankara's Classified Web Site at http://www.intelink.sgov.gov/wiki/Portal:Turk ey Jeffrey