Identifier
Created
Classification
Origin
09SOFIA180
2009-04-14 06:24:00
CONFIDENTIAL
Embassy Sofia
Cable title:
BULGARIA'S ENERGY DEBUT: GETTING WHAT WE WANT AT SOFIA'S NATURAL GAS SUMMIT
how-toVZCZCXRO8832 OO RUEHDBU RUEHFL RUEHKW RUEHLA RUEHNP RUEHROV RUEHSR DE RUEHSF #0180/01 1040624 ZNY CCCCC ZZH O 140624Z APR 09 FM AMEMBASSY SOFIA TO RUEHC/SECSTATE WASHDC IMMEDIATE 5922 INFO RUEHZL/EUROPEAN POLITICAL COLLECTIVE PRIORITY RUEAIIA/CIA WASHINGTON DC PRIORITY RUCPDOC/DEPT OF COMMERCE WASHINGTON DC PRIORITY RHEBAAA/DEPT OF ENERGY WASHINGTON DC PRIORITY RHEHAAA/NATIONAL SECURITY COUNCIL WASHINGTON DC PRIORITY
C O N F I D E N T I A L SECTION 01 OF 04 SOFIA 000180
SIPDIS
FOR SPECIAL ENVOY FOR EURASIAN ENERGY RICHARD MORNINGSTAR
E.O. 12958: DECL: 04/07/2019
TAGS: ENRG ECON PREL PGOV BU
SUBJECT: BULGARIA'S ENERGY DEBUT: GETTING WHAT WE WANT AT SOFIA'S NATURAL GAS SUMMIT
REF: SOFIA 0109
Classified By: CDA Alex Karagiannis for reason 1.4 (b) and (d).
C O N F I D E N T I A L SECTION 01 OF 04 SOFIA 000180
SIPDIS
FOR SPECIAL ENVOY FOR EURASIAN ENERGY RICHARD MORNINGSTAR
E.O. 12958: DECL: 04/07/2019
TAGS: ENRG ECON PREL PGOV BU
SUBJECT: BULGARIA'S ENERGY DEBUT: GETTING WHAT WE WANT AT SOFIA'S NATURAL GAS SUMMIT
REF: SOFIA 0109
Classified By: CDA Alex Karagiannis for reason 1.4 (b) and (d).
1. (C) Summary: The April 24-25 Sofia Energy Summit is many things to many people. Bulgaria's ostensible goal is to improve Europe's outreach and relationship with Central Asian and Caspian producers, while at the same time putting Sofia on the energy map. Russia will use it as a way to highlight and garner greater acceptance and legitimacy for South Stream. A skeptical European Commission has been providing substantive guidance to ensure the event is not a ball at which only Putin will dance. With consistent engagement over the past six months, we have pushed hard for an agenda focused on transparency, diversity, and market-based competitiveness. As a strategic partner of the United States, an EU member state struggling to find its footing within Brussels institutions, and nearly 100 percent dependent on Russian gas, oil and nuclear fuel, the Bulgarians have an incredibly difficult balancing act. They are determined to pull it off. Your participation at the Summit sends an important message of support for Sofia's efforts and will keep the event focused on the principles and policies undergirding energy security. End Summary.
TIMING
--------------
2. (C) Your visit to Sofia comes as Bulgaria attempts to bill itself as an emerging European energy center. With six active or potential oil and gas pipelines transiting the country, the recent creation of a new energy mega-holding company, the construction of one new nuclear plant and rumors of another, and the hosting of a major forum devoted to European energy security, Bulgaria wants to be taken seriously as a regional energy player. Achieving this status won't be easy. Bulgaria relies on Russia for over 70 percent of its energy needs; nearly 100 percent of its gas, oil and nuclear fuel is Russian. Moscow is not only the dominant supplier, it is also the dominant player here. Vladimir Putin has held multiple meetings with the Bulgarian President and Prime Minister in the last year and was the first leader to announce participation at the April Summit. PM Stanishev will travel to Moscow immediately after the Summit.
3. (C) But there are also increasing signs that Bulgaria's long-term trust in Russia as a partner and supplier is waning. Bulgaria was hard hit by the two-week January gas shut-off resulting from the Russia-Ukraine dispute in January. Since then, Bulgarian officials have accused Gazprom of breach of contract, pushed for elimination of Gazprom-owned intermediaries in its supply contacts, moved forward on diversification projects, and launched discussions with transparency organizations and the World Bank on mechanisms to bring greater transparency to the gas transit sector.
THE SUMMIT
--------------
4. (C) The April 24-25 Sofia Energy Summit is Bulgaria's attempt to put Sofia on the map not only as an energy center, but as a place that brokers discussions between the West, Russia and Eurasia. The Bulgarians have invited 28 countries at the head of state or government level, as well as the European Commission. They claim to have confirmations of "over 15 (and counting)" delegations at this level, including Russia, Azerbaijan, Qatar, Italy, all of Bulgaria's neighbors, Ukraine, Georgia, Armenia, and Hungary. The Bulgarians indicate the European Commission is sending Commissioner Piebalgs, while Turkmenistan, Egypt and the Czech Republic are sending Deputy Prime Ministers or Ministers. Officially called "Natural Gas for Europe: Security and Partnership," the agenda will focus on the trends, principles and policies that will improve Europe's energy security.
5. (C) The January gas crisis gave the long-planned summit new relevance. We've repeatedly told the Bulgarians that the success or failure of the event will depend on the extent to which it addresses issues that caused the January crisis: lack of diversification of sources, absence of transparency in the supply chain, and secretive agreements that govern gas supply and transit. Russia has a different view. Eager to use the event to gain international, or at least European Commission acceptance of South Stream, Russia has advocated placing a list of "supported" projects, including South Stream, into drafts of the official Summit declaration and is pressuring countries and company partners to sign various South Stream agreements on the event's margins (Serbia is most likely). The European Commission (joined by a majority of delegations) is against a project list and has threatened to pull Commissioner Piebalgs' participation if one appears.
6. (C) The draft declaration otherwise hits all the right notes, including an emphasis on diversification, transparency, market orientation of projects and third party access. Continuing the new-found Bulgarian interest in transparency, the Bulgarian Energy Holding will kick off the Summit with a business forum on the morning of April 24, at which Peter Eigen, founder of the Extractive Industries Transparency Initiative and Transparency International, will discuss ways governments and companies can bring transparency to the natural gas supply chain.
7. (C) Comment: Bulgaria wants this summit to showcase its centrality for European energy security/diversity. The Bulgarians are acutely conscious that their event falls between the January Hungary-hosted Nabucco Summit and the May Czech/EU Energy Summit. They are even more acutely attentive to the story behind the story: how the United States, EU, Russia and Eurasia define the principles and policies for European energy. Here, Russia's geographic and geologic advantages (and monopolistic practices) test a European Union that still lacks a coherent, coordinated position. The Bulgarians have cultivated Turkmenistan and Azerbaijan, concluding they are critical for new non-Russian gas to flow to Europe. But they have not gotten very far. Alone, the Bulgarians do not have the clout to move Moscow or Brussels, or even Ashgabat or Baku. That is where we can come in. And all of this comes just as Bulgaria heads to national parliamentary elections -- the Bulgarians will be even more anxious than normal to chalk a success and listen to our advice. End Comment.
MEETINGS WITH BULGARIAN OFFICIALS
--------------
8. (C) The Sofia Summit will offer important bilateral meeting opportunities, which we will set up in coordination with your office. Among the Bulgarian officials you will likely meet:
--President Georgi Parvanov began his second five-year-term in 2007. Parvanov's desire to exercise behind-the-scenes influence over the government has led to tensions with his former protege, Prime Minister Sergei Stanshiev. Parvanov has close ties to Russian politicians and has held no less than nine meetings with Vladimir Putin in the last seven years. The energy summit is being held under his aegis.
--Prime Minister Sergei Stanishev is a 42-yr-old progressive Socialist. He is pro-west and eager to have Bulgaria viewed as a good friend and partner of the United States. He understands Bulgaria is overly dependent on Russian energy sources, but sees Bulgaria has having few options for greater energy independence.
--Economy and Energy Minister Petar Dimitrov is a relative new-comer to energy issues. During his first year in office he was largely seen as taking direction on energy matters from former Energy Minister Rumen Ovcharov, who is linked with Russian energy interests and left office in June 2007 after a corruption scandal. Since the January gas crisis, Dimitrov has been openly critical of Russia's influence in the energy sector and has aggressively pursued compensation from Gazprom for losses incurred during the gas cut-off.
--Foreign Minister Kalfin, whom you met in Washington, is close to both Stanishev and Parvanov and as Deputy Prime Minister oversees the Economy and Energy Ministry. He is a strong supporter of close Bulgarian-U.S. relations and is highly conversant on energy issues.
BULGARIAN ENERGY PROJECTS
--------------
9. (C) Bulgaria is pursuing a host of energy projects, including:
-- SOUTH STREAM: The Bulgarians were the first to sign an inter-governmental agreement (IGA) on South Stream, in January 2008. Since then, the project has made little progress due to Russian insistence that the Bulgarian section of the pipeline use part of Bulgaria's existing infrastructure to cut project costs. This is a non-starter for Bulgaria, which views this and other Russian proposals contrary to the spirit and letter of the IGA. The next step on South Stream is the signing of a shareholders agreement between the Russian and Bulgarian project companies. This is still a ways off. Eager for another political signing to show progress on the project, the Russians are pressuring Bulgaria to sign a "cooperation agreement" or "pre-shareholders agreement," which Bulgaria's U.S.-based South Stream legal counsel calls a "nothing document" that punts difficult issues for future agreements. The Bulgarians will likely sign this cooperation agreement during PM Stanishev's next Moscow visit April 26-27, directly after the Sofia Summit.
-- NABUCCO: Bulgaria is a full partner in Nabucco and the GOB has been careful to display strong public support for the project after taking considerable criticism for signing up to South Stream. Privately, Bulgarian officials express increasing skepticism about Nabucco's prospects and they will be eager to hear the new U.S. administration's views on the project's future.
-- TGI HOOK-UP: The Bulgarian Government as made outreach to Central Asian and Caspian producers a priority. Their efforts resulted in "commitments" from both Azerbaijan and Turkmenistan for certain quantities of natural gas. In March 2008 Sofia signed what it thought was an agreement for 1 bcm of Azeri gas that Bulgaria would take as part of its Nabucco quota. Now the Bulgarians are in discussions with both Greece and Turkey about a Bulgarian spur to the TGI interconnector to take the Azeri gas. Your Bulgarian interlocutors will likely seek your views on -- and support for -- this project and may ask which spur would make more geo-political (and economic) sense: Greece or Turkey.
-- OTHER DIVERSIFICATION PROJECTS: Since the January gas crisis, diversification has been the watchword for Bulgaria. During the Sofia Summit the Bulgarian Minister of Economy and Energy will likely sign a memorandum of understanding with his Greek counterpart on gas and electrical grid interconnections. Bulgaria and Greece are also discussing the joint construction of a new LNG terminal in Northern Greece. Bulgaria is holding similar discussions on interconnections with all of its other neighbors. At home, it plans to upgrade gas storage facilities which proved incapable of meeting Bulgaria's needs during the two-week gas cut-off at the beginning of the year.
-- BURGAS-ALEXANDROUPOLIS (BAP) and AMBO: The Bulgarians, Russians and Greeks signed a shareholders agreement for the BAP oil pipeline in January 2008. Since then, they've registered a project company but have made little further progress. Still, this Bosphorus bypass pipeline is further along than the long-planned, American-owned AMBO (Albania-Macedonia-Bulgaria) project, which has lost momentum in the past two years. Nevertheless, Bulgaria remains committed to AMBO and is ready to move forward if and when it attracts supply and financing.
-- BELENE: In 2006, Bulgaria selected Russian AtomstroyExport as the contractor for the new Belene nuclear power plant. Bulgaria is keeping majority ownership of the plant, but has selected RWE as a 49 percent strategic investor. Marred by cost over-runs, financing problems, infighting between strategic partners, rumors of corruption and serious delays, the project is looking increasingly like a lemon. But with 700 million euros in sunk costs, in addition to priceless political capital already invested, the government is unlikely to walk away from the project.
-- KOZLUDUY 7 and 8: As rumors of Belene's troubles multiply, the Bulgarian Minister of Energy Petar Dimitrov and others have resurrected the idea of building two new reactors, Kozluduy 7 and 8, at the site of Bulgaria's only operational nuclear plant (Kozluduy 5 and 6). Energy Minister Dimitrov has unabashedly pursued Westinghouse for this project as a way to diminish dependence on Russian nuclear fuel. Westinghouse has expressed interest, but only if the government can come up with adequate financing -- a tall order in a tough financial climate.
Karagiannis
SIPDIS
FOR SPECIAL ENVOY FOR EURASIAN ENERGY RICHARD MORNINGSTAR
E.O. 12958: DECL: 04/07/2019
TAGS: ENRG ECON PREL PGOV BU
SUBJECT: BULGARIA'S ENERGY DEBUT: GETTING WHAT WE WANT AT SOFIA'S NATURAL GAS SUMMIT
REF: SOFIA 0109
Classified By: CDA Alex Karagiannis for reason 1.4 (b) and (d).
1. (C) Summary: The April 24-25 Sofia Energy Summit is many things to many people. Bulgaria's ostensible goal is to improve Europe's outreach and relationship with Central Asian and Caspian producers, while at the same time putting Sofia on the energy map. Russia will use it as a way to highlight and garner greater acceptance and legitimacy for South Stream. A skeptical European Commission has been providing substantive guidance to ensure the event is not a ball at which only Putin will dance. With consistent engagement over the past six months, we have pushed hard for an agenda focused on transparency, diversity, and market-based competitiveness. As a strategic partner of the United States, an EU member state struggling to find its footing within Brussels institutions, and nearly 100 percent dependent on Russian gas, oil and nuclear fuel, the Bulgarians have an incredibly difficult balancing act. They are determined to pull it off. Your participation at the Summit sends an important message of support for Sofia's efforts and will keep the event focused on the principles and policies undergirding energy security. End Summary.
TIMING
--------------
2. (C) Your visit to Sofia comes as Bulgaria attempts to bill itself as an emerging European energy center. With six active or potential oil and gas pipelines transiting the country, the recent creation of a new energy mega-holding company, the construction of one new nuclear plant and rumors of another, and the hosting of a major forum devoted to European energy security, Bulgaria wants to be taken seriously as a regional energy player. Achieving this status won't be easy. Bulgaria relies on Russia for over 70 percent of its energy needs; nearly 100 percent of its gas, oil and nuclear fuel is Russian. Moscow is not only the dominant supplier, it is also the dominant player here. Vladimir Putin has held multiple meetings with the Bulgarian President and Prime Minister in the last year and was the first leader to announce participation at the April Summit. PM Stanishev will travel to Moscow immediately after the Summit.
3. (C) But there are also increasing signs that Bulgaria's long-term trust in Russia as a partner and supplier is waning. Bulgaria was hard hit by the two-week January gas shut-off resulting from the Russia-Ukraine dispute in January. Since then, Bulgarian officials have accused Gazprom of breach of contract, pushed for elimination of Gazprom-owned intermediaries in its supply contacts, moved forward on diversification projects, and launched discussions with transparency organizations and the World Bank on mechanisms to bring greater transparency to the gas transit sector.
THE SUMMIT
--------------
4. (C) The April 24-25 Sofia Energy Summit is Bulgaria's attempt to put Sofia on the map not only as an energy center, but as a place that brokers discussions between the West, Russia and Eurasia. The Bulgarians have invited 28 countries at the head of state or government level, as well as the European Commission. They claim to have confirmations of "over 15 (and counting)" delegations at this level, including Russia, Azerbaijan, Qatar, Italy, all of Bulgaria's neighbors, Ukraine, Georgia, Armenia, and Hungary. The Bulgarians indicate the European Commission is sending Commissioner Piebalgs, while Turkmenistan, Egypt and the Czech Republic are sending Deputy Prime Ministers or Ministers. Officially called "Natural Gas for Europe: Security and Partnership," the agenda will focus on the trends, principles and policies that will improve Europe's energy security.
5. (C) The January gas crisis gave the long-planned summit new relevance. We've repeatedly told the Bulgarians that the success or failure of the event will depend on the extent to which it addresses issues that caused the January crisis: lack of diversification of sources, absence of transparency in the supply chain, and secretive agreements that govern gas supply and transit. Russia has a different view. Eager to use the event to gain international, or at least European Commission acceptance of South Stream, Russia has advocated placing a list of "supported" projects, including South Stream, into drafts of the official Summit declaration and is pressuring countries and company partners to sign various South Stream agreements on the event's margins (Serbia is most likely). The European Commission (joined by a majority of delegations) is against a project list and has threatened to pull Commissioner Piebalgs' participation if one appears.
6. (C) The draft declaration otherwise hits all the right notes, including an emphasis on diversification, transparency, market orientation of projects and third party access. Continuing the new-found Bulgarian interest in transparency, the Bulgarian Energy Holding will kick off the Summit with a business forum on the morning of April 24, at which Peter Eigen, founder of the Extractive Industries Transparency Initiative and Transparency International, will discuss ways governments and companies can bring transparency to the natural gas supply chain.
7. (C) Comment: Bulgaria wants this summit to showcase its centrality for European energy security/diversity. The Bulgarians are acutely conscious that their event falls between the January Hungary-hosted Nabucco Summit and the May Czech/EU Energy Summit. They are even more acutely attentive to the story behind the story: how the United States, EU, Russia and Eurasia define the principles and policies for European energy. Here, Russia's geographic and geologic advantages (and monopolistic practices) test a European Union that still lacks a coherent, coordinated position. The Bulgarians have cultivated Turkmenistan and Azerbaijan, concluding they are critical for new non-Russian gas to flow to Europe. But they have not gotten very far. Alone, the Bulgarians do not have the clout to move Moscow or Brussels, or even Ashgabat or Baku. That is where we can come in. And all of this comes just as Bulgaria heads to national parliamentary elections -- the Bulgarians will be even more anxious than normal to chalk a success and listen to our advice. End Comment.
MEETINGS WITH BULGARIAN OFFICIALS
--------------
8. (C) The Sofia Summit will offer important bilateral meeting opportunities, which we will set up in coordination with your office. Among the Bulgarian officials you will likely meet:
--President Georgi Parvanov began his second five-year-term in 2007. Parvanov's desire to exercise behind-the-scenes influence over the government has led to tensions with his former protege, Prime Minister Sergei Stanshiev. Parvanov has close ties to Russian politicians and has held no less than nine meetings with Vladimir Putin in the last seven years. The energy summit is being held under his aegis.
--Prime Minister Sergei Stanishev is a 42-yr-old progressive Socialist. He is pro-west and eager to have Bulgaria viewed as a good friend and partner of the United States. He understands Bulgaria is overly dependent on Russian energy sources, but sees Bulgaria has having few options for greater energy independence.
--Economy and Energy Minister Petar Dimitrov is a relative new-comer to energy issues. During his first year in office he was largely seen as taking direction on energy matters from former Energy Minister Rumen Ovcharov, who is linked with Russian energy interests and left office in June 2007 after a corruption scandal. Since the January gas crisis, Dimitrov has been openly critical of Russia's influence in the energy sector and has aggressively pursued compensation from Gazprom for losses incurred during the gas cut-off.
--Foreign Minister Kalfin, whom you met in Washington, is close to both Stanishev and Parvanov and as Deputy Prime Minister oversees the Economy and Energy Ministry. He is a strong supporter of close Bulgarian-U.S. relations and is highly conversant on energy issues.
BULGARIAN ENERGY PROJECTS
--------------
9. (C) Bulgaria is pursuing a host of energy projects, including:
-- SOUTH STREAM: The Bulgarians were the first to sign an inter-governmental agreement (IGA) on South Stream, in January 2008. Since then, the project has made little progress due to Russian insistence that the Bulgarian section of the pipeline use part of Bulgaria's existing infrastructure to cut project costs. This is a non-starter for Bulgaria, which views this and other Russian proposals contrary to the spirit and letter of the IGA. The next step on South Stream is the signing of a shareholders agreement between the Russian and Bulgarian project companies. This is still a ways off. Eager for another political signing to show progress on the project, the Russians are pressuring Bulgaria to sign a "cooperation agreement" or "pre-shareholders agreement," which Bulgaria's U.S.-based South Stream legal counsel calls a "nothing document" that punts difficult issues for future agreements. The Bulgarians will likely sign this cooperation agreement during PM Stanishev's next Moscow visit April 26-27, directly after the Sofia Summit.
-- NABUCCO: Bulgaria is a full partner in Nabucco and the GOB has been careful to display strong public support for the project after taking considerable criticism for signing up to South Stream. Privately, Bulgarian officials express increasing skepticism about Nabucco's prospects and they will be eager to hear the new U.S. administration's views on the project's future.
-- TGI HOOK-UP: The Bulgarian Government as made outreach to Central Asian and Caspian producers a priority. Their efforts resulted in "commitments" from both Azerbaijan and Turkmenistan for certain quantities of natural gas. In March 2008 Sofia signed what it thought was an agreement for 1 bcm of Azeri gas that Bulgaria would take as part of its Nabucco quota. Now the Bulgarians are in discussions with both Greece and Turkey about a Bulgarian spur to the TGI interconnector to take the Azeri gas. Your Bulgarian interlocutors will likely seek your views on -- and support for -- this project and may ask which spur would make more geo-political (and economic) sense: Greece or Turkey.
-- OTHER DIVERSIFICATION PROJECTS: Since the January gas crisis, diversification has been the watchword for Bulgaria. During the Sofia Summit the Bulgarian Minister of Economy and Energy will likely sign a memorandum of understanding with his Greek counterpart on gas and electrical grid interconnections. Bulgaria and Greece are also discussing the joint construction of a new LNG terminal in Northern Greece. Bulgaria is holding similar discussions on interconnections with all of its other neighbors. At home, it plans to upgrade gas storage facilities which proved incapable of meeting Bulgaria's needs during the two-week gas cut-off at the beginning of the year.
-- BURGAS-ALEXANDROUPOLIS (BAP) and AMBO: The Bulgarians, Russians and Greeks signed a shareholders agreement for the BAP oil pipeline in January 2008. Since then, they've registered a project company but have made little further progress. Still, this Bosphorus bypass pipeline is further along than the long-planned, American-owned AMBO (Albania-Macedonia-Bulgaria) project, which has lost momentum in the past two years. Nevertheless, Bulgaria remains committed to AMBO and is ready to move forward if and when it attracts supply and financing.
-- BELENE: In 2006, Bulgaria selected Russian AtomstroyExport as the contractor for the new Belene nuclear power plant. Bulgaria is keeping majority ownership of the plant, but has selected RWE as a 49 percent strategic investor. Marred by cost over-runs, financing problems, infighting between strategic partners, rumors of corruption and serious delays, the project is looking increasingly like a lemon. But with 700 million euros in sunk costs, in addition to priceless political capital already invested, the government is unlikely to walk away from the project.
-- KOZLUDUY 7 and 8: As rumors of Belene's troubles multiply, the Bulgarian Minister of Energy Petar Dimitrov and others have resurrected the idea of building two new reactors, Kozluduy 7 and 8, at the site of Bulgaria's only operational nuclear plant (Kozluduy 5 and 6). Energy Minister Dimitrov has unabashedly pursued Westinghouse for this project as a way to diminish dependence on Russian nuclear fuel. Westinghouse has expressed interest, but only if the government can come up with adequate financing -- a tall order in a tough financial climate.
Karagiannis