Report of the Portfolio Committee on Energy on the Energy Stakeholder
Meeting, scheduled on 20 February 2014, dated 12 March 2014
Theme: “Assessment of Upstream Sector in
oil and gas industry”
1. Opening
remarks by the Chairperson, Hon SJ Njikelana
The Chairperson noted that the purpose of the meeting was to
get a brief assessment of the upstream sector in the oil and gas industry. The
Chairperson indicated that he was approached by a number of stakeholders on
legislation, policy and the need for certainty. The Chairperson said that there
is evidence of increased interest in oil and gas exploration as attested to by
the Petroleum Agency of South Africa (PASA).
The National Development Plan (NDP) and related instruments makes reference to
the importance of energy so this Portfolio Committee is obliged to be creative
from time to time. The Chairperson did indicate that the Portfolio Committee
had a previous meeting on the downstream sector, but the need arose to address
issues on the upstream sector as well. This meeting was thus an opportunity for
further exposure and the comments and points made will be fed into the legacy
report of this Committee to the Fifth Parliament. He further highlighted that
part of Parliament’s function is to initiate debate, and public participation
is a vital component.
He set out the context, saying that South Africa was seized with formidable
challenges of ensuring accessibility, transformation and sustainability to the
energy stream and to ensure that whatever is already in existence is refined
and improved. He further commented on how the dynamic of oil could influence
and change the political and economic development in countries.
2. Members present and stakeholders
Members included Mr SJ Njikelana (Chairperson of the PC on
Energy), Mr L Greyling (Member of the PC on Energy) and Mr Letmer (Member of
the PC on Mineral Resources)
Stakeholders who were invited included: Department of
Energy, PetroSA, Petroleum Agency of SA (PASA), SA Oil and Gas Association
(SAOGA), Shell, SASOL, Engen, BPSA, Anadarko, Cairn India, Chevron, SAPIA, Falcon
Oil, Kinetiko Energy, SacOil, Sunbird Energy, Total, Trafigura and also
representatives from various international accounting firms (Deloitte &
Touche, Bowmann Gilfillian, KPMG and Edward Nathan Sonnenburg.)
2.
Presentations
2.1. Overview by the Department of
Energy (DoE)
Mr Muzi Mkhize, Chief Director, Hydrocarbons Policy, Department of Energy, stated
that his presentation focused on creating an enabling environment, and he would
thus set out the role of government, and of the private sector and what the
future might hold.
The key challenge for government at the moment is the need to achieve a
difficult balance between lowering consumer prices, and high input costs,
achieving security of supply and meeting the empowerment needs of Historically
Disadvantaged South Africans (HDSA) and the BBBEE requirements. Security of
supply is key to South Africa, but the challenge is that there should be a need
to balance this with higher costs of producing liquid fuels, in comparison to
the past system, which contributed to higher consumer prices.
He set out the background to the oil and gas industries,
noting that before 2001, the gas industry was not regulated, but the downstream
petroleum industry was. The White Paper on Energy of 1998 was adopted, and
this, amongst other aims, sought to ensure security of energy supply, and said
that the oil and gas industries must be transformed through a statutory
framework. The upstream legislation framework was done under the MPRDA.
Promotion was done by PASA, and regulatory aspects by DMR.
The DOE dealt with the downstream gas regulatory framework. This was covered by
the Gas Act of 2001. This Act sought to promote efficient, effective,
sustainable and orderly development and operations, and to facilitate
investment.
The gas value chain comprised fields, gathering, transmission, and then
distributions to the markets, (large and small), industrial and domestic. There
was a resource for gas to liquid conversion at Mossel Bay. There is gas from
Mozambique coming to Sasol, but the Integrated Resource Plan (IRP) indicated
that 15% of new electricity generation capacity is to come from gas. The
“anchor customer” for the gas will be the gas-fired power stations.
Transmission is one area where government will have to play a major role.
Cooperation will be required to make this possible. There will have to be
transformation throughout the value chain. Government is currently looking at a
gas utilisation strategy. He noted that there are substantial gas resources in
Mozambique, and South Africa is in discussion with Mozambique, through the Gas
Commission, and there is already trade between the two countries.
The regulation of the downstream sector is covered by the Petroleum Products
Act (PPA), which provides for licensing of manufacturers, wholesalers and
retailers. It modernised the old Act, and prohibited certain actions relating
to petroleum, and aims to address the balance of power between retailers and
wholesalers.
He noted that at present, the DoE was looking at amending the PPA, but this is
still a matter which is under discussion and is being dealt with internally.
Mr Mkhize stated that the National Energy Regulator of South Africa (NERSA)
regulates the industry, through licenses, attempts to ensure HDSA empowerment
and approved tariffs and prices. The Gas Amendment Bill seeks to promote
companies in the industry that are owned or controlled by HDSAs, and sets gas
sector-specific requirements, promotes equitable provision of gas transmission,
storage, distribution, trading, compression, liquefaction and regasification
services, and also promotes skills development and Broad Based Black Economic
Empowerment (BBBEE) in the gas industry and development of competitive markets
for gas and gas services. This Bill is still being discussed at National
Economic Development and Labour Council (Nedlac), there has been a public
consultation and the bill should shortly be taken to Cabinet for approval.
He noted that the Petroleum Products Act will also be reviewed and the
preparation of a new Bill is being discussed. The Petroleum Pipelines Act will
follow the normal process of public participation before formulating the
policy.
2.2. Presentation by the PetroSA
Mr Bongani Sayidini, Regional Manager: East Africa, PetroSA,
pointed out that the mandate of PetroSA is to operate as a commercial entity
and create value for its shareholders and South Africa at large, to advance
national objectives in the petroleum industry and complement and promote
Government policy and strategic thrust. He noted that the PetroSA strategy needs
to be adaptive to the evolving policy landscape of RSA.
PetroSA views security of supply in the context of the Energy
Security Master Plan (2007) definition as “Ensuring that diverse energy
sources, in sustainable quantities at affordable prices are available to the
South African economy, in support of economic growth and poverty alleviation,
taking into account environmental management requirements and interactions
among economic sectors.
From an upstream perspective diversity implied oil and gas
exploration across a geographic spread.
On the West Coast, PetroSA is involved with other companies, including Sunbird
Energy, Anadarko and Cairn India. Comparing the South African and other basins,
he noted that the basins in South Africa are relatively under explored,
although larger. There has been good success in the Outeniqua Basin but this
includes some non-commercial discoveries. There is no deep-water drilling in
South Africa.
The advent of shale gas has made South Africa realise its potential fortune in
shale. South Africa is ranked eighth in the world by the US Energy Information
Administration (US EIA) with 390 trillion cubic feet of technically recoverable
gas reserves. Shale gas could have a positive impact on the economy through job
creation, taxes and royalties, services sector, technology development and
increased foreign exchange as well as spin offs to petrochemicals, fertilisers
and related industries.
He noted that designating PetroSA as the carrier of the state participation
interest in the MPRDA would empower the National Oil Company (NOC) and will
allow the State to participate from exploration phase, based on a free carry,
to develop technical and commercial knowledge and appreciate the risks. The
exploration risks, including geological and financial risks, will be carried by
the foreign explorers.
Localization should ideally entail local beneficiation, Broad
Based Black Economic Empowerment (BBBEE), supplier development and human
capital development.
He reiterated that the spin offs of localization would be a positive balance of
payment, since substantial dollars entering the country would remain in the
country. Oil companies will benefit though a smoother flow of suppliers,
increasing efficiencies and driving down costs, reliable local supply and
harmonious stakeholder relations and reduction in operation costs by keeping
expatriate staff to the minimum.
Key considerations to localization would be an assessment of
the technological, financial and human resources in the country, identification
of the types of services that could be performed by local companies, and the
types of goods and services that could be developed in the country. The
financial investment required to develop the local goods and services and
skills market, would also need to be assessed.
Setting out the skills scenario, he said that PetroSA has been at the forefront
of development of core skills, including reservoir engineers and
petro-geoscientists. In the past 10 years, the company focused on the
development of black South Africans through overseas scholarships secondments
and on the job training. There is a Memorandum of Cooperation with Schlumberger
to explore setting up a shale gas technology centre in the country to carry out
further research in shale gas. He pointed out that Schlumberger already
operated in ten of the largest shale basins in USA.
2.3. Presentation by the Petroleum Agency of SA
(PASA)
Ms L. Mekwe, Acting CEO, said that oil and gas exploration
and production is regulated by the Mineral and Petroleum Resources Development
Act (MPRDA). This Act set out terms and conditions of exploration, production
rights in respect of matters finding origins in Liquid Fuels Charter such as
the Upstream Training Trust, state participation, good practices and standards.
The MPRDA seeks to promote economic growth and development through optimal
exploration and production, ensuring that production right holders contribute
to socio economic development and ensured development in an orderly and
ecologically sustainable manner.
Mr D. van der Spuy, Resource Evaluation Manager, PASA, said he would
concentrate on the future prospects on oil and gas resources, but referred
Members to the slides on current activities.
Mr van der Spuy said that interest in South Africa has become very high
recently and about 20 companies are involved with production and exploration
rights. Onshore is also well represented, with about 67 concessions on shore,
of local and international companies.
Onshore, the interest in the Karoo was largely in “unconventionals”, in the
coal-bearing areas, including biogenic and shale gas. All of this was supported
by data availability.
According to PASA, biogenic gas was discovered in the Virginia Area and
Evander. PASA explained that biogenetic gas as follows: most gas was produced
by thermogenic activity, where heat and pressure in the rock combine to convert
biomass to gas. Biogenic gas, on the other hand, is produced by bacteria living
underground that metabolises organic material, so to that extent it could
perhaps be regarded as a resource that would not run out.
He moved on to describe the shale gas in the Karoo. The US EIA had previously
reported that this was estimated at 485 TcF, but now the figure had been
reviewed to 390 TcF. This was part of a worldwide study looking at many
countries with not much concentration on detail from one country to another.
PASA had done its own detailed study and believed that the resource was more
likely to be 40 TcF in recoverable resource. This might be smaller than the
numbers produced by the EIA, but it is still a significant amount of gas.
He noted that there are several risks faced in relation to gas and oil
discoveries. The North Sea yielded significant reserves, although only after 21
oil wells were drilled was the source discovered. The current exploration
success rates for conventional resources were around 25%, based on geological
and not commercial finds. Commercial success usually requires further drilling.
Factors increasing the risk are the regulatory regime, stability of that regime
and the countries, markets, and engineering and technological capacity to be
found.
The question was asked how a large gas discovery would benefit South Africa.
Currently, under the current legislation, an oil and gas exploration company
would have to apply for production rights which will then require state
participation, BBBEE participation and social development commitments. There
will be a revenue stream to the state from company taxation and production
royalties, an increase in the security of supply, and a change in the energy
mix, to move away from reliance on coal, as well as the potential for increased
infrastructure development.
2.4. Presentation by the SA Oil and Gas Association (SAOGA)
Mr Ebrahim Takolia, Executive Director / Chief Executive
Officer, South African Oil and Gas Alliance, explained that the Alliance
(SAGOA) is ten years old, and moved from its origins in the ship repair
industry to a national organisation. It implements its strategy through a
number of task teams
He said that the first question was whether South Africa had an upstream and
midstream industry, and his answer to this was that there was no direct
industry, but one based on passing trade of rigs and ships, and a number of
engineering and other firms based in South Africa provides services and
products into East and West African countries. The local upstream work is
limited largely to Mossgas and the mid-stream work to PetroSA’s new work and,
since the current refineries was built long ago, to maintenance of those
refineries.
Mr Takolia said that the oil and gas value chain is based largely on risks and
skills. At the early stages, it could cost upwards of R20 billion to do
offshore exploration. South Africa did not manufacture rigs, or the cement
going into the well or casing. It could supply some of the services but it cost
US$500 000 a day to run the rig, and USD$1 million a day to do the drilling. In
South Africa the opportunities for rig work is limited to case equipment and
crew.
Mr Takolia pointed out that oil and gas exploration also provides limited
opportunities for BBBEE involvement; because there is such low certainty on
recovery of funding, there is consequently not much opportunity for BBBEE
entrepreneurs to access funding, and any BBBEE partners will have to put in
equity themselves. There is potential for skills development but the risk is
that offshore exploration might not yield the results expected, in which case
those who had undergone the training would look for opportunities elsewhere in
the world and those skills would move to other countries.
He noted that as projects moves into later stages, the risks and funding
aspects changes. The upstream area is one involving “a calculated roll of the
dice” and he cited that Mozambique, Kenya and Tanzania had all secured
exploration resources. If South Africa were to get to that stage, it can then
look at how to bring products onshore and into the markets.
He noted that at the moment, there is not much of a local market for gas. Only
2% of primary energy in the country is derived from gas, and there is no
distribution network, except for one combined power station. The lack of such
network is a limiting factor. He said that there is a need to look at
developing a gas market, so that primary energy supplied by gas can rise to the
levels of other countries, where it is currently around 20%.
Mr Takolia stated that there are some areas where it is possible to look for
fabrication, but it will have to be specific. For instance, South Africa
manufactures pressure vessels. However, in respect of offshore exploration, and
to some extent hydraulic fracturing, it does not have the technology, or it
will take too long to build up skills and expertise to manufacture these
high-technology components.
Mr Takolia then touched upon the future of oil and gas. South Africa has
significant potential for upstream activity, based on what is happening in
South Africa, but it is small in terms of production and reserves on a global
basis. Africa has 27 million square kilometres, and there continues to be more
discoveries. Engineering and other firms working elsewhere in Africa often base
themselves in South Africa, because this country has infrastructure that they
find to be useful. There are some major projects – mostly upgrades of crude and
gas refineries- but the main project is the plant in Mozambique.
3. Discussions
4.
Closing remarks by the Chairperson
In closing, the Chairperson
expressed his gratitude that so many stakeholders had again proven the value of
these stakeholder meetings and will welcome inputs in future. He hoped that the
Fifth Parliament will continue with this type of valuable engagement.
He proposed that the DoE needed to
take several matters further. Departments such as National Treasury should be
present in future meetings, as it would have been useful to hear comments on
incentives. He noted that the Department of Mineral Resources was invited to
attend but it was under substantial pressure itself and that they were unable
to attend. It would have also been helpful to have had representatives from the
Department of Environmental Affairs present in the meeting as well.
He said that the Committee
observed how other countries build their industries through synergy. Good
working relations are very important and he noted that there is a huge
challenge, in South Africa, of information asymmetry and ancillary matters
include job creation. Various pointers to the need to remedy the challenges
have been made. The investment climate for infrastructure is an important
point, and he hopes that the sector will be robust enough to continue its
engagement.
For the gas sector, the
Chairperson is optimistic that there will soon be discoveries that will be a
game changer. The DoE, on behalf of government, is engaging with Tanzania and
Mozambique to tap into the gas industry and he hopes to see gas as an energy
source taking 20% of the energy sector, and urged the industry to strive to
this target, by considering also how to take up Liquid Petroleum Gas or Liquid
Natural Gas. He thanked Sasol for raising the need to find an integrated
approach, and said that in future other departments need to be more involved.
He appreciated the frankness shown on all sides.
5.
Recommendations
The Minister
of Energy:
·
Organises a colloquium on
how to facilitate synergies for investment and promotion of the upstream oil
and gas sector in the 5th Parliament as a matter of urgency;
·
Further addresses concerns
raised by the industry especially regarding legislative constraints, policy
uncertainty, BEE challenges, etc.;
·
In conjunction with the
Minister of Trade & Industry, Minister of Finance, Minister of Higher
Education and Training and the Minister of Economic Development, facilitates
opportunities on industrialisation including various aspects of localization in
the upstream oil and gas sector;
·
Ensures legal and regulatory
certainty , stability and predictability regarding the oil and gas sector is
galvanised;
·
In partnership with various
stakeholders especially relevant government departments together with the oil
and gas industry, promotes SA as an investment destination through creation of,
inter alia, a conducive investment
climate that will be coupled with appropriate incentives as well as use the opportunity to promote gas
including raising capital for locals;
·
Addresses concerns about
MPRDA Amendment Bill as articulated by the oil and gas industry;
·
Ensures government is
consistent in employing an integrated approach in promoting and advancing the
oil and gas industry.