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Viewing cable 06SAOPAULO464, MULTINATIONAL'S CONCERNS ABOUT BOLIVIAN GAS
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Reference ID | Created | Released | Classification | Origin |
---|---|---|---|---|
06SAOPAULO464 | 2006-05-03 14:04 | 2011-07-11 00:00 | UNCLASSIFIED//FOR OFFICIAL USE ONLY | Consulate Sao Paulo |
VZCZCXRO2639
PP RUEHRG
DE RUEHSO #0464/01 1231404
ZNR UUUUU ZZH
P 031404Z MAY 06
FM AMCONSUL SAO PAULO
TO RUEHC/SECSTATE WASHDC PRIORITY 4964
INFO RUEHAC/AMEMBASSY ASUNCION 2535
RUEHBO/AMEMBASSY BOGOTA 1352
RUEHBR/AMEMBASSY BRASILIA 6107
RUEHBU/AMEMBASSY BUENOS AIRES 2193
RUEHDR/AMEMBASSY DAR ES SALAAM 0020
RUEHLE/AMEMBASSY LUXEMBOURG 0009
RUEHMN/AMEMBASSY MONTEVIDEO 1944
RUEHSG/AMEMBASSY SANTIAGO 1684
RUEHRG/AMCONSUL RECIFE 2885
RUEHRI/AMCONSUL RIO DE JANEIRO 7050
RHEHNSC/NSC WASHDC
RUEATRS/DEPT OF TREASURY WASHDC
RHEGDOE/DEPT OF ENERGY WASHINGTON DC
RUCPDOC/USDOC WASHDC 2399
UNCLAS SECTION 01 OF 03 SAO PAULO 000464
SIPDIS
SENSITIVE
SIPDIS
NSC FOR SUE CRONIN
DOE FOR SLADISLAW
TREASURY FOR OASIA
USDOC FOR 4332/ITA/MAC/WH/OLAC
USDOC FOR 3134/ITA/USCS/OIO/WH/RD
E.O. 12958: N/A
TAGS: ENRG EPET EINV ECON PGOV PREL BL BR
SUBJECT: MULTINATIONAL'S CONCERNS ABOUT BOLIVIAN GAS
NATIONALIZATION
REF: A. 05 SAO PAULO 735
¶B. 05 SAO PAULO 789
¶C. SAO PAULO 152
¶D. BRASILIA 754
¶1. (SBU) Summary: The Sao Paulo-based head of British Gas
(BG) for South America expressed grave concerns about the May
1 Bolivian Government decree nationalizing natural gas
production. Brazil's Petrobras was hit the worst of all the
multinational companies, losing much of its revenue stream in
Bolivia's largest gas fields and losing control of its two
refineries. Waddell predicted a muted international reaction
as companies await further definition of the decree's vague
provisions. Should foreign companies leave or be expelled,
Bolivia has the capacity to continue current production by
coercing Bolivian hydrocarbons industry workers to stay on
and importing Venezuelan industry executives. Bolivia will
likely continue sending natural gas to Brazil, which has
recently tested provisions to reduce gas consumption if need
be. Production in Brazil's Santos Basin, which has the
potential to replace Bolivian gas, will not start production
until 2009 at the earliest. End Summary.
Evo's Masterful Maneuver
------------------------
¶2. (SBU) During a May 2 conversation, BG Executive Vice
President for South America Rick Waddell told Econ/Pol Chief
that Bolivian President Evo Morales had been very politically
astute in how he issued the May 1 (May Day) decree
"nationalizing" hydrocarbons production, raising taxes to 82
percent in Bolivia's two mega fields (run by Petrobras,
Repsol, and Total), and regaining state control of
capitalized companies (including the Transredes pipeline
company operated by US company Prisma, and the two EBR
refineries run by Petrobras) with no mention of compensation.
Waddell noted that Evo had originally wanted to issue the
decree mid-April (during Holy Week) but had delayed after
Petrobras complained about the lack of consultation. The
Bolivian Government sent senior hydrocarbons officials
(including Minister Solis) two times to Brasilia for talks,
which went badly since the Bolivians simply told the
Brazilians they had to be willing to work in Bolivia as mere
service providers. Nonetheless, Waddell continued that
Petrobras and the other hydrocarbons companies could not
believe the Bolivian Government would actually do what
Morales said he would do (and in the process turning its back
on future investment from Brazil), a complacency encouraged
by conciliatory public statements by the Bolivians through
last week. According to Waddell, the decree, which was
harsher than expected, was driven by ideology and meant to
help Morales consolidate himself in power by coming two
months before elections for Bolivia's constituent assembly,
which Morales hopes will rewrite the country's constitution a
la Chavez in Venezuela.
Big Blow to Brazil
------------------
¶3. (SBU) Waddell characterized the decree as a slap in the
face of Brazil, one of the countries that has been most
supportive of the new Morales administration. The fact that
the Brazilian Government recalled both Foreign Minister
Amorim and Petrobras President Gabrielli from abroad shortly
after the decree's issuance is indicative of how concerned
the Brazilians are. One potential carrot in the decree that
the Bolivians will likely use on Petrobras is the offer to
"audit" companies in the megafields on a case-by-case basis
and offer some rebate of the huge 82 percent tax bill.
Waddell noted that the decree leaves many questions
SAO PAULO 00000464 002 OF 003
unanswered on procedures and definitions, including what will
happen with Petrobras' refineries.
Muted International Reaction
----------------------------
¶4. (SBU) Waddell predicted little concrete reaction by the
international community to the nationalization decree. As
previously reported, the multinationals had all sent "trigger
letters," which allege non-compliance of contracts by the
Bolivian Government and enable any of the companies to start
international arbitration cases against Bolivia. (Note: Our
understanding is that Petrobras never sent a trigger letter.
End Note). He doubted any of the companies would begin
arbitration yet, preferring to see how events unfold. This
lack of action, in turn, emboldens Morales, who thinks he can
emulate what Chavez did to the companies in Venezuela. The
difference, asserted Waddell, is that the companies in
Venezuela had already invested tens of billions of dollars
there and could not afford to walk away. Bolivia, on the
other hand, is at the beginning of its investment cycle (now
frozen), and the multinationals could afford to walk away if
need be. For example, Bolivia provides just two percent of
BG's world production, and their total investment there is
about ten percent of BG's annual profit; a hit, but not
fatal.
With Venezuelan Help, Bolivia Can Maintain Production
--------------------------------------------- --------
¶5. (SBU) Waddell believes that even if the multinational
companies leave Bolivia or are kicked out, the Bolivians will
be able to keep up current production, though not do any new
investment. While YPFB, the Bolivian state hydrocarbons
company, does not have enough qualified technicians to keep
things running, enough Bolivian workers could easily be found
at the multinationals. In BG's case, there are only three
foreign executives in the country, with the rest being
Bolivian nationals. The Bolivians could be coerced into
staying on once the "imperialists" were gone and work for
YPFB, or they would be unemployed, or even jailed as
"traitors." Executives from Venezuelan state hydrocarbons
company PDVSA could replace the expelled foreign executives.
Waddell recounted BG's recent experience, when YPFB wanted to
check out a BG field ostensibly to inquire about bottled
natural gas. In reality, the visit was to check on the whole
operation, with only two YPFB employees showing up along with
a dozen PDVSA employees wearing their company work clothes.
The PDVSA workers insulted the BG Bolivians, telling them
they will soon have to wear a Venezuelan flag over the
Bolivian flag on their work clothes.
Unlikely to Hurt Brazil's Gas Supply
------------------------------------
¶6. (SBU) While difficult to predict the decree's impact on
Brazil's natural gas supply, especially given the Morales
administration's unpredictability, Waddell doubted that
Bolivia would try to cut off or reduce the supply of gas to
Brazil. Bolivia needs the revenue from Brazilian sales too
much, as well as the petroleum for the domestic market that
can only be produced in conjunction with natural gas.
Waddell also doubted the Bolivians would unilaterally try to
raise the price of gas to Brazil given that the contract
regulating the price was signed under New York law and would
generate the same problems of reduced revenue if the
Bolivians tried to reduce or cut off Brazil's gas supply.
Waddell used Brazil's recent actions after the gas supply
from Bolivia was reduced from a landslide-damaged pipeline as
an example of what Brazil could do to mitigate the effects of
SAO PAULO 00000464 003 OF 003
reduced supply. The current pipeline has a capacity of 30
million cubic meters (mm3) per day, and Brazil was taking 26
mm3 before the accident in March dropped the flow to 21 mm3.
To make up for the missing 5 mm3, the Brazilians decreased
thermo-electric electricity generation using gas and switched
the power used to run two major Petrobras refineries in
Brazil. This resulted in enough energy savings to allow
other industries to continue to use gas during this period.
Although it will take another 30-60 days to finish repairs to
the pipeline in Bolivia, most of the missing gas has already
been made up through bypasses. If further gas use reduction
is needed, Brazil can raise taxes on natural gas use in
vehicles and lower taxes on gasoline use.
¶7. (SBU) Regarding the potential gas reserves in Brazil's
Santos Basin, Waddell noted that the Brazilian Government
publicly states that production will begin by 2008, a ploy
used to pressure Bolivia. The industry (including candid
Petrobras officials), however, knows that production cannot
begin until 2009 at the earliest. The Basin can eventually
produce 30 mm3, enough to replace the Bolivian gas supply,
and perhaps even more as exploration continues (the
exploration-to-production phase takes 3-5 years). Waddell
also discussed how Bolivia could increase production to
maximize the 30 mm3 capacity of the pipeline, should Brazil
need more gas before Santos is on-line. Even in the poor
current investment climate in Bolivia, companies could be
willing to invest more money in Bolivia to bring fields
relatively easily and cheaply into production. However, no
one is willing to invest in new production development or
build new pipelines.
Bolivia's Lost Opportunities with Other Neighbors
--------------------------------------------- ----
¶8. (SBU) Bolivia is currently selling 4-6 mm3 to Argentina on
interruptible contracts, which Argentina would like to make
permanent and increase in volume. While this could be a
windfall for Bolivia, Waddell does not foresee needed
investment materializing to take advantage of this demand.
Chile, which would normally be a good customer for Bolivian
gas were it not for political problems, will import more
expensive liquefied natural gas (LNG) via a BG
regassification plant.
¶9. (U) This cable was coordinated with Embassies Brasilia and
La Paz.
MCMULLEN