Identifier
Created
Classification
Origin
09KAMPALA1356
2009-12-03 06:13:00
CONFIDENTIAL
Embassy Kampala
Cable title:
UGANDA: CORRUPTION ALLEGATIONS ACCOMPANY ARRIVAL
how-toVZCZCXRO6030 RR RUEHRN RUEHROV DE RUEHKM #1356/01 3370613 ZNY CCCCC ZZH R 030613Z DEC 09 FM AMEMBASSY KAMPALA TO RUEHC/SECSTATE WASHDC 1987 INFO RUCNIAD/IGAD COLLECTIVE RUEHXR/RWANDA COLLECTIVE RUEHKI/AMEMBASSY KINSHASA 1002 RUEAIIA/CIA WASHINGTON DC RHMFISS/HQ USAFRICOM STUTTGART GE
Thursday, 03 December 2009, 06:13
C O N F I D E N T I A L SECTION 01 OF 03 KAMPALA 001356
SIPDIS
EO 12958 DECL: 11/29/2019
TAGS PGOV, EPET, ECON, EINV, ENRG, KCOR, UG
SUBJECT: UGANDA: CORRUPTION ALLEGATIONS ACCOMPANY ARRIVAL
OF MAJOR OIL FIRMS
REF: A. 08 KAMPALA 1648 B. KAMPALA 366
Classified By: Econ Officer Don Cordell for reasons 1.4 (b) and (d).
Thursday, 03 December 2009, 06:13
C O N F I D E N T I A L SECTION 01 OF 03 KAMPALA 001356
SIPDIS
EO 12958 DECL: 11/29/2019
TAGS PGOV, EPET, ECON, EINV, ENRG, KCOR, UG
SUBJECT: UGANDA: CORRUPTION ALLEGATIONS ACCOMPANY ARRIVAL
OF MAJOR OIL FIRMS
REF: A. 08 KAMPALA 1648 B. KAMPALA 366
Classified By: Econ Officer Don Cordell for reasons 1.4 (b) and (d).
1. (C) Summary: ExxonMobil interest in Tullow Oil’s Ugandan operations, and Italian oil giant ENI’s attempt to purchase Heritage Oil’s local holdings, mark a clear shift from exploration to the beginnings of production. The remote location of Uganda’s oil wells, the difficult chemistry of the oil within, and President Museveni’s insistence on building a domestic refinery are pricing smaller firms like Heritage and Tullow Oil out of the Ugandan market. Unfortunately, major oil company interest in Uganda also triggered renewed corruption allegations as U.K.-based Tullow Oil suspects Ugandan leaders of conspiring with ENI to strip Tullow of its most profitable oil exploration license. Failing to resolve this issue could jeopardize Tullow’s standing in Uganda and set the stage for further oil sector corruption. End Summary.
--------------
The High Cost of Ugandan Oil Production
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2. (U) The estimated 1.5-2 billion recoverable barrels of oil along the shores of Lake Albert in western Uganda could transform Uganda into one of the world’s the top 50 oil producers, surpassing other African oil nations like Gabon and Equatorial Guinea (ref. A). Tullow Oil, which is currently the largest oil exploration company in Uganda, estimates that non-revenue generating production could begin as early as summer of 2010, with production gradually increasing to around 10,000 barrels per day over the next three to six years. Tullow predicts a peak production rate of around 150,000 barrels per day within ten years.
3. (U) A number of costly challenges hamper Ugandan oil exploration and production. Oil companies operating in western Uganda must navigate complicated land tenure and property rights issues. Offshore production on Lake Albert poses other cross-border problems as much of the oil beneath the lake is likely on Congolese territory. Ecological and environmental concerns add another complication, as the oil is located is one of ten most ecologically biodiverse areas in the world. Protecting western Uganda’s extremely fragile ecology - and burgeoning wildlife tourism industry - while drilling for oil presents an enormous challenge for Uganda’s oil sector.
4. (U) Although classified as “sweet†crude, the oil’s high wax content gives it the consistency of shoe polish. An eventual export pipeline must therefore heat the oil to keep it flowing. Industry experts estimate pipeline costs at $3-4 billion. Transporting oil from the fields to market will also require major transportation infrastructure investments over the next five years in areas such as road and rail construction and improvement. On-site infrastructure, such as power production and waste management, is also needed.
5. (SBU) President Museveni’s requirement for a domestic oil refinery further increases production costs. Museveni believes value addition is the only way to develop Uganda’s economy. The President also wants to reduce Uganda’s reliance on fuel supply lines from Kenya and avoid a repeat - for national security reasons - of the crippling fuel crisis that hit Uganda following 2007/2008 elections in Kenya. Ugandan officials are eyeing a 200,000 barrel per day refinery. Oil company experts maintain that nothing larger than a 50,000 barrel per day refinery - estimated at $5-6 billion - is economically feasible. A smaller refinery could supply the oil demands of Uganda, Southern Sudan, eastern Congo, and Rwanda and still leave the bulk of Ugandan oil for export. The Ministry of Energy recently issued a tender for a refinery feasibility study. The tender is financed by the Norwegian government. Two U.S. firms bid on the tender, but neither made the Ministry’s short list.
--------------
Enter Major Oil Companies
--------------
6. (SBU) The smaller international oil companies active in Uganda - Tullow, Heritage, Dominion, and Neptune - have already spent a combined $800 million on exploration in Uganda. The price tag and technical requirements of an eventual pipeline ($3-4 billion),refinery ($5-6 billion),
KAMPALA 00001356 002 OF 003
transportation network improvements, and as yet unspecified on-site infrastructure are well beyond these companies’ means. In September, Tullow and Heritage offered to sell portions of their Ugandan holdings. Neptune and Dominion are still in the early exploration phases, but will likely follow suit if their efforts yield similarly encouraging results.
7. (C) ExxonMobil, ENI, French firm Total, and the Chinese National Offshore Oil Corporation (CNOOC) have expressed interest in Tullow and Heritage. Executives from ExxonMobil visited Uganda on November 18-19, and met with Ambassador Lanier, Mission Officers, the Ministry of Energy and Mineral Development (MEMD),Uganda’s Petroleum Exploration and Production Department (PEPD),and Tullow. Having partnered with ExxonMobil in Ghana, Tullow is anxious to join with ExxonMobil in Uganda as Tullow views ExxonMobil as the most technically capable, financial secure, and professionally responsible major bidder. ExxonMobil representatives who traveled to Kampala said they were “very impressed†with both the Ugandan government oil representatives and the potential of Tullow’s finds.
--------------
Enter Major Oil Intrigue
--------------
8. (C) On 23 November, just days after ExxonMobil’s departure, local media reported Heritage Oil’s intention to sell its Ugandan assets to Italian oil giant ENI for $1.35 billion. Heritage shares 50% of two exploration blocks along the shores of Lake Albert with Tullow. News of the sale clearly caught some senior Ugandan officials - including Energy Minister Hillary Onek - by surprise. Other officials, such as MEMD Undersecretary for Finance William Apuuli, appeared intricately aware of the deal when asked by EconOff.
9. (C) It is doubtful whether Heritage can sell its holdings without Tullow’s prior approval. Tullow claims that contractual agreements give it right of first refusal over any sale of Heritage’s stake in prospecting blocks owned jointly by Tullow and Heritage. Tullow’s position is weakened, however, by another surprise development - Uganda’s decision to strip Tullow’s offshore exploration rights. In addition to the two blocks Tullow splits 50-50 with Heritage, Tullow owns 100% of a third block covering most all of Lake Albert. Tullow announced a major offshore discovery in this block in September, and oil experts believe most of Uganda’s oil reserves are located offshore. Tullow’s exploration license, however, expired on October 31. On November 20, after weeks of negotiations, Uganda extended Tullow’s license for another two years, but for onshore holdings only. Omitted from the extension is reference to any of Tullow’s offshore holdings in Lake Albert.
10. (C) On November 24, Tullow’s Head of External Relations Andy Demetriou told EconOff that Tullow believes ENI made personal payments to President Museveni and Ministry of Energy officials in return for Tullow’s offshore exploration rights. Demetriou accused ENI of using similar tactics in the Democratic Republic of Congo (DRC) to acquire exploration licenses on the Congolese side of Lake Albert allegedly already purchased by Tullow. The purchase of Heritage’s holdings may be the first step toward enabling ENI to scoop up the offshore rights denied to Tullow. If the Heritage deal falls through, ENI’s interest in Uganda will likely also evaporate.
11. (U) On December 2, local media reported that the Uganda Revenue Authority will acquire $375 to $675 million in capital gains taxes from the Heritage-ENI sale. According to ENI’s website, CEO Paolo Scaroni met with President Museveni on August 13 to confirm “the company’s strong intention to create a new and lasting partnership with Uganda.†Scaroni told the Dow Jones newswire on December 1 that there are “some obstacles†to the Heritage sale, but that Tullow cannot exercise its pre-emptive rights without approval from the Ugandan government. According to an unnamed Ugandan presidency official cited in the Dow Jones report, the Ugandan government “wants the $1.35 billion deal to sail through and will do what it can to ensure that United Kingdom based Tullow doesn’t scupper it.â€
12. (C) Tullow leadership has told the Ambassador and EmbOffs that the company has not paid any bribes or made “contributions†to Ugandan officials despite numerous complaints from some of those officials about Tullow “not helping them.†Tullow officials believe their refusal to pay off Government of Uganda leadership is the source of their
KAMPALA 00001356 003 OF 003
current difficulties with ENI and offshore licenses.
-------------- --------------
Comment: Sweet Priorities, Light Details, Crude Corruption
-------------- --------------
13. (C) Rising political and financial attention to Ugandan oil is apparently leading President Museveni and other senior Ugandan officials to pay more attention to the opinions of international experts. With oil scheduled to start flowing as early as 2010, the continued absence of a comprehensive legal framework governing oil reserves and revenues is of increasing concern (ref. B). Uganda’s National Oil and Gas Policy provides a basic framework, but is noticeably short on detail. Uganda’s draft Petroleum Law is designed to fill in missing details on oil production and revenue management, but Cabinet has yet to submit the legislation to Parliament and the bill may now not be completed until mid-2010 at the earliest. The draft Petroleum Law does not address oil-related corruption. Tullow’s standing in Uganda, and ExxonMobil interest in partnering with Tullow, may hinge on the recovery of Tullow’s offshore rights and forestalling the Heritage-ENI sale. Allegations of back-room deals between Ugandan leaders and a major oil giant do not bode well for the future management of Uganda’s oil resources. LANIER
C O N F I D E N T I A L SECTION 01 OF 03 KAMPALA 001356
SIPDIS
EO 12958 DECL: 11/29/2019
TAGS PGOV, EPET, ECON, EINV, ENRG, KCOR, UG
SUBJECT: UGANDA: CORRUPTION ALLEGATIONS ACCOMPANY ARRIVAL
OF MAJOR OIL FIRMS
REF: A. 08 KAMPALA 1648 B. KAMPALA 366
Classified By: Econ Officer Don Cordell for reasons 1.4 (b) and (d).
1. (C) Summary: ExxonMobil interest in Tullow Oil’s Ugandan operations, and Italian oil giant ENI’s attempt to purchase Heritage Oil’s local holdings, mark a clear shift from exploration to the beginnings of production. The remote location of Uganda’s oil wells, the difficult chemistry of the oil within, and President Museveni’s insistence on building a domestic refinery are pricing smaller firms like Heritage and Tullow Oil out of the Ugandan market. Unfortunately, major oil company interest in Uganda also triggered renewed corruption allegations as U.K.-based Tullow Oil suspects Ugandan leaders of conspiring with ENI to strip Tullow of its most profitable oil exploration license. Failing to resolve this issue could jeopardize Tullow’s standing in Uganda and set the stage for further oil sector corruption. End Summary.
--------------
The High Cost of Ugandan Oil Production
--------------
2. (U) The estimated 1.5-2 billion recoverable barrels of oil along the shores of Lake Albert in western Uganda could transform Uganda into one of the world’s the top 50 oil producers, surpassing other African oil nations like Gabon and Equatorial Guinea (ref. A). Tullow Oil, which is currently the largest oil exploration company in Uganda, estimates that non-revenue generating production could begin as early as summer of 2010, with production gradually increasing to around 10,000 barrels per day over the next three to six years. Tullow predicts a peak production rate of around 150,000 barrels per day within ten years.
3. (U) A number of costly challenges hamper Ugandan oil exploration and production. Oil companies operating in western Uganda must navigate complicated land tenure and property rights issues. Offshore production on Lake Albert poses other cross-border problems as much of the oil beneath the lake is likely on Congolese territory. Ecological and environmental concerns add another complication, as the oil is located is one of ten most ecologically biodiverse areas in the world. Protecting western Uganda’s extremely fragile ecology - and burgeoning wildlife tourism industry - while drilling for oil presents an enormous challenge for Uganda’s oil sector.
4. (U) Although classified as “sweet†crude, the oil’s high wax content gives it the consistency of shoe polish. An eventual export pipeline must therefore heat the oil to keep it flowing. Industry experts estimate pipeline costs at $3-4 billion. Transporting oil from the fields to market will also require major transportation infrastructure investments over the next five years in areas such as road and rail construction and improvement. On-site infrastructure, such as power production and waste management, is also needed.
5. (SBU) President Museveni’s requirement for a domestic oil refinery further increases production costs. Museveni believes value addition is the only way to develop Uganda’s economy. The President also wants to reduce Uganda’s reliance on fuel supply lines from Kenya and avoid a repeat - for national security reasons - of the crippling fuel crisis that hit Uganda following 2007/2008 elections in Kenya. Ugandan officials are eyeing a 200,000 barrel per day refinery. Oil company experts maintain that nothing larger than a 50,000 barrel per day refinery - estimated at $5-6 billion - is economically feasible. A smaller refinery could supply the oil demands of Uganda, Southern Sudan, eastern Congo, and Rwanda and still leave the bulk of Ugandan oil for export. The Ministry of Energy recently issued a tender for a refinery feasibility study. The tender is financed by the Norwegian government. Two U.S. firms bid on the tender, but neither made the Ministry’s short list.
--------------
Enter Major Oil Companies
--------------
6. (SBU) The smaller international oil companies active in Uganda - Tullow, Heritage, Dominion, and Neptune - have already spent a combined $800 million on exploration in Uganda. The price tag and technical requirements of an eventual pipeline ($3-4 billion),refinery ($5-6 billion),
KAMPALA 00001356 002 OF 003
transportation network improvements, and as yet unspecified on-site infrastructure are well beyond these companies’ means. In September, Tullow and Heritage offered to sell portions of their Ugandan holdings. Neptune and Dominion are still in the early exploration phases, but will likely follow suit if their efforts yield similarly encouraging results.
7. (C) ExxonMobil, ENI, French firm Total, and the Chinese National Offshore Oil Corporation (CNOOC) have expressed interest in Tullow and Heritage. Executives from ExxonMobil visited Uganda on November 18-19, and met with Ambassador Lanier, Mission Officers, the Ministry of Energy and Mineral Development (MEMD),Uganda’s Petroleum Exploration and Production Department (PEPD),and Tullow. Having partnered with ExxonMobil in Ghana, Tullow is anxious to join with ExxonMobil in Uganda as Tullow views ExxonMobil as the most technically capable, financial secure, and professionally responsible major bidder. ExxonMobil representatives who traveled to Kampala said they were “very impressed†with both the Ugandan government oil representatives and the potential of Tullow’s finds.
--------------
Enter Major Oil Intrigue
--------------
8. (C) On 23 November, just days after ExxonMobil’s departure, local media reported Heritage Oil’s intention to sell its Ugandan assets to Italian oil giant ENI for $1.35 billion. Heritage shares 50% of two exploration blocks along the shores of Lake Albert with Tullow. News of the sale clearly caught some senior Ugandan officials - including Energy Minister Hillary Onek - by surprise. Other officials, such as MEMD Undersecretary for Finance William Apuuli, appeared intricately aware of the deal when asked by EconOff.
9. (C) It is doubtful whether Heritage can sell its holdings without Tullow’s prior approval. Tullow claims that contractual agreements give it right of first refusal over any sale of Heritage’s stake in prospecting blocks owned jointly by Tullow and Heritage. Tullow’s position is weakened, however, by another surprise development - Uganda’s decision to strip Tullow’s offshore exploration rights. In addition to the two blocks Tullow splits 50-50 with Heritage, Tullow owns 100% of a third block covering most all of Lake Albert. Tullow announced a major offshore discovery in this block in September, and oil experts believe most of Uganda’s oil reserves are located offshore. Tullow’s exploration license, however, expired on October 31. On November 20, after weeks of negotiations, Uganda extended Tullow’s license for another two years, but for onshore holdings only. Omitted from the extension is reference to any of Tullow’s offshore holdings in Lake Albert.
10. (C) On November 24, Tullow’s Head of External Relations Andy Demetriou told EconOff that Tullow believes ENI made personal payments to President Museveni and Ministry of Energy officials in return for Tullow’s offshore exploration rights. Demetriou accused ENI of using similar tactics in the Democratic Republic of Congo (DRC) to acquire exploration licenses on the Congolese side of Lake Albert allegedly already purchased by Tullow. The purchase of Heritage’s holdings may be the first step toward enabling ENI to scoop up the offshore rights denied to Tullow. If the Heritage deal falls through, ENI’s interest in Uganda will likely also evaporate.
11. (U) On December 2, local media reported that the Uganda Revenue Authority will acquire $375 to $675 million in capital gains taxes from the Heritage-ENI sale. According to ENI’s website, CEO Paolo Scaroni met with President Museveni on August 13 to confirm “the company’s strong intention to create a new and lasting partnership with Uganda.†Scaroni told the Dow Jones newswire on December 1 that there are “some obstacles†to the Heritage sale, but that Tullow cannot exercise its pre-emptive rights without approval from the Ugandan government. According to an unnamed Ugandan presidency official cited in the Dow Jones report, the Ugandan government “wants the $1.35 billion deal to sail through and will do what it can to ensure that United Kingdom based Tullow doesn’t scupper it.â€
12. (C) Tullow leadership has told the Ambassador and EmbOffs that the company has not paid any bribes or made “contributions†to Ugandan officials despite numerous complaints from some of those officials about Tullow “not helping them.†Tullow officials believe their refusal to pay off Government of Uganda leadership is the source of their
KAMPALA 00001356 003 OF 003
current difficulties with ENI and offshore licenses.
-------------- --------------
Comment: Sweet Priorities, Light Details, Crude Corruption
-------------- --------------
13. (C) Rising political and financial attention to Ugandan oil is apparently leading President Museveni and other senior Ugandan officials to pay more attention to the opinions of international experts. With oil scheduled to start flowing as early as 2010, the continued absence of a comprehensive legal framework governing oil reserves and revenues is of increasing concern (ref. B). Uganda’s National Oil and Gas Policy provides a basic framework, but is noticeably short on detail. Uganda’s draft Petroleum Law is designed to fill in missing details on oil production and revenue management, but Cabinet has yet to submit the legislation to Parliament and the bill may now not be completed until mid-2010 at the earliest. The draft Petroleum Law does not address oil-related corruption. Tullow’s standing in Uganda, and ExxonMobil interest in partnering with Tullow, may hinge on the recovery of Tullow’s offshore rights and forestalling the Heritage-ENI sale. Allegations of back-room deals between Ugandan leaders and a major oil giant do not bode well for the future management of Uganda’s oil resources. LANIER