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### Viewing cable 04LAGOS634, OIL INDUSTRY CAUTIOUSLY EMBRACES NIGERIAN

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Reference ID | Created | Released | Classification | Origin
--- | --- | --- | --- | ---
04LAGOS634 | 2004-03-24 05:23 | 2011-08-25 00:00 | UNCLASSIFIED//FOR OFFICIAL USE ONLY | Consulate Lagos

`

    This record is a partial extract of the original cable. The full text of the original cable is not available.

` `

    UNCLAS SECTION 01 OF 04 LAGOS 000634

    SIPDIS

    STATE PASS TO EXIM, OPIC AND TDA
    EXIM for MSCURRY
    DOC for MRIVERO
    ENERGY FOR CGAY

    SENSITIVE BUT UNCLASSIFIED

    E.O. 12958: N/A
    TAGS: EPET EINV PGOV NI
    SUBJECT:  OIL  INDUSTRY  CAUTIOUSLY  EMBRACES  NIGERIAN
    LOCAL CONTENT

    ¶1.   (U) SUMMARY.  The GON requires oil companies to
    use indigenous contractors in joint venture projects,
    with a current target goal for "local content" set at
    40 percent of a company's aggregate spending on a
    project.  Defining what constitutes local content and
    enforcing the target fairly and efficiently have proven
    difficult, and domestic fabrication and labor
    capacities remain low.  The industry wants to ensure,
    as it undertakes the effort to increase indigenous
    participation in contracts, that the concept of local
    content is based on a contractor's ability for domestic
    value-added rather than on the nationality of the
    equity stakeholders alone.  With restrictive
    legislation and higher local content targets on the
    horizon, the next several years offer an excellent
    opportunity for American companies both to participate
    in capacity building of Nigerian domestic firms, and to
    establish manufacturing and service operations in-
    country.  END SUMMARY.

    ¶2.   (U) The GON encourages foreign companies involved
    in the oil industry to maximize Nigerian participation
    in the projects they undertake. But local content
    targets are not codified and are administered in
    different ways by the Department of Petroleum Resources
    (DPR), the Ministry of Internal Affairs and the
    National Petroleum Investment and Management Services
    agency (NAPIMS). Interest and confusion over targets
    run high, as evidenced during the Offshore West Africa
    Conference held in Abuja March 17-19.  According to
    Paul Heuper, Special Energy Advisor at the U.S.
    Department of Commerce, who was a presenter at the
    conference, the breakout session for local content
    discussion was attended by over 100 people (compared to
    20 at other sessions), and at one point degenerated
    into a free-for-all shouting match between members of
    the audience and a Shell representative leading the
    discussion.  Heuper told ECONOFF that there seemed to
    be no common understanding of what are the current and
    near-term GON goals, and no agreement as to what
    constitutes local content.

    --------------------------------------------- ---
    WHAT IS LOCAL CONTENT: OWNERSHIP OR VALUE-ADDED?
    --------------------------------------------- ---

    ¶3.   (SBU) Companies doing business in Nigeria's
    petroleum sector must obtain various business and
    project permits from DPR. The Ministry of Internal
    Affairs, meanwhile, limits the number of expatriates
    who can enter Nigeria to fill jobs.  The limits on
    expatriate workers vary with the level of expertise
    required and the training or experience Nigerians may
    have to do the anticipated work.  Furthermore, every
    contract worth $500,000 or more entered into by an oil
    company must be reviewed at multiple stages by NAPIMS,
    which insists that 40 percent of the aggregate spending
    on projects in Nigeria be on "local content."  But,
    multinational oil companies and oil services firms
    alike complain that they have little guidance
    specifying what constitutes local content on any given
    project.  In a recent meeting with Maureen Scurry of
    the U.S. Export-Import Bank (USEXIM), Tom Hoffman,
    Chevron Nigeria's General Manager for Finance and
    Information Technology, lamented that too often
    businesses that are essentially shell corporations
    owned by at least one Nigerian are used to partner with
    international firms for the purpose of technically
    meeting local content requirements, but the former
    contribute little by way of actual Nigerian input.

    ¶4.   (SBU) NAPIMS, for example, may approve a
    refurbishing contract that includes as a subcontractor
    a firm owned by a Nigerian, even if that firm has
    minimal facilities in Nigeria and ultimately ships the
    parts to the United States or elsewhere to be retooled
    and then re-imported.  Hoffman said his company would
    rather not use such firms because they provide no value
    added to a project: they provide no inputs derived from
    Nigeria and may have few Nigerian employees other than
    those who own the company.  According to Hoffman, such
    arrangements are neither cost effective nor
    sustainable.  Phillip Chukwu, Group Managing Director
    of NAPIMS, admitted to ECONOFF on March 16 that in many
    people's minds, including Nigerians in both business
    and government, such arrangements are sufficient to
    meet local content requirements.  Chukwu nonetheless
    agreed with Hoffman that the process would be more
    effective if the government established guidelines
    focused on a company's domestic value added to a
    project rather than the nationality of its owners.

    ------------------------------------
    CHEVRON'S LOCAL CONTENT VALUE MATRIX
    ------------------------------------

    ¶5. (SBU) According to Chevron's Hoffman, his company
    uses a value matrix to determine the local content a
    contractor will provide if brought into a project.
    Elements that Chevron evaluates include the number of
    Nigerians the company employs and in what positions,
    the nature of the supply chain that will support the
    project, the extent to which raw materials to be used
    in the supply chain originate in Nigeria, and the
    amount of taxes the contractor pays to the Nigerian
    government.  Gibson Ola, Chevron Nigeria's Supply Chain
    Manager, added that the company's goals regarding local
    content are to increase the value added in Nigeria and
    to build domestic capacity in the sector, including
    training Nigerians to work in oil services.

    ----------------------------------
    NAPIMS PROCESS SLOW AND BURDENSOME
    ----------------------------------

    ¶6. (SBU) Chevron's Ola described Nigeria's local
    content regulatory regime as a work in progress.
    Hoffman said that in the absence of regulation, NAPIMS
    uses its contracting approval process to promote local
    content.  According to Hoffman, projects worth $500,000
    or more must be reviewed and approved by NAPIMS at
    several stages. NAPIMS officials evaluate everything
    from the advertisements a company will run for bid
    solicitation to the details of the contracts and
    subcontracts used at various phases of the project.
    NAPIMS chief Phillip Chukwu described his agency's
    relationship with the oil companies as advisory, but
    admitted that a project will not go forward without
    NAPIMS approval at each step.

    ¶7. (SBU) The NAPIMS approval process is often
    burdensome, according to officials in oil companies,
    oil services firms, and NAPIMS.  The NAPIMS review is
    cumbersome and slow, to the point that the approval
    process sometimes is longer than the lifespan of the
    intended contract.  By the time approvals are obtained
    in some instances, a new contract must be negotiated
    and maneuvered through NAPIMS all over again.  Hoffman
    said the delays in the NAPIMS process add uncertainty
    and cost to Chevron Nigeria's contracts, which in turn
    hamper local content capacity building as project
    managers are less willing to work with unknown or new
    Nigerian firms in order to minimize the risk of further
    delays.  Uncertainty in NAPIMS review frustrates oil
    services companies (OSC) as well.  Ray Blanchard,
    Manager of Cooper Cameron's operations in Nigeria, told
    ECONOFF that his company never knows if its bids on
    contracts will satisfy NAPIMS local content rules, even
    though all but a handful of Cameron's employees are
    Nigerian including managers, and the company maintains
    relatively large office, workshop, and fabrication
    facilities in the Delta.

    ¶8. (SBU) NAPIMS' Chukwu agreed his agency's approval
    process sometimes takes longer than the timeframe of a
    proposed project, and said he is trying to streamline
    the review process.  He said NAPIMS is considering
    reducing the number of departments involved in contract
    approval, and raising the contract threshold for the
    agency's review to perhaps one million dollars, which
    Hoffman also suggested would provide welcomed relief.

    -----------------------------
    LEGISLATION FOR LOCAL CONTENT
    -----------------------------

    ¶9. (SBU) A bill submitted in 2003 to codify local
    content rules is scheduled for consideration in the
    National Assembly in late March.  In the meantime,
    NAPIMS plans to increase local content goals from 40%
    of aggregate spending on a project to 45% by 2006 and
    70% by 2010.  Chevron managers told us that the oil
    industry in Nigeria is working as a group through the
    Oil Producers' Trade Section (OPTS) of the Lagos
    Chamber of Commerce to shape the bill, but more
    important, the accepted definition of local content.
    Chevron's Hoffman said that in addition to pressing the
    view that Nigerian value added is more important than
    equity stake, the industry will press to see that local
    content requirements work to the advantage of firms
    having such capability in bid qualifications.
    According to Hoffman, the industry would like to see
    companies contributing a greater percentage of value
    added local content win contracts even if other
    technical elements, such as longevity or financial
    liquidity, are less developed than competitors offering
    little value added.

    ---------------------------------
    INDUSTRY SEES WRITING ON THE WALL
    ---------------------------------

    ¶10. (SBU) When asked why the industry is pursuing what
    appears to be the more restrictive local content
    requirement based on value added, Hoffman admitted that
    the oil companies see the writing on the wall and know
    they need to help shape the legislation if it is to be
    "done right."  Hoffman said there is a risk to using
    shell companies to meet local content goals because
    sometimes such companies have little capacity to
    deliver on contracts, forcing project managers to hire
    additional contractors to do the same work.  These
    delays, along with the delays in NAPIMS approvals, are
    more costly to the foreign oil companies than are
    higher contract costs associated with doing business
    with firms offering more value added, even if the
    latter need assistance in capacity building.  Greater
    local content improves the net project value if it
    reduces project delays, according to Hoffman.

    ¶11. (SBU) Hoffman also said that value added local
    content should be more cost effective over time.  He
    and Chevron's supply manager Ola said principles of
    corporate responsibility also demand a commitment to
    tangible local content.  They also noted that future
    corporate opportunities, like gas exploration, lie in
    developing economies like Nigeria, and developing local
    content will help access those opportunities.

    -----------------
    CAPACITY BUILDING
    -----------------

    ¶12. (SBU) Hoffman identified four requirements for
    development of Nigeria's local content in the oil
    sector.  First, capacity and capability must be built.
    There are too few indigenous firms in Nigeria that can
    provide the products, fabrication or services needed by
    the international oil companies operating in the
    country.  Hoffman said business management must also be
    improved so that companies like Chevron Nigeria can be
    confident that subcontractors will perform as
    contracted and will be sustainable and grow over time.
    He said financing is a major issue, particularly with
    start-ups.  And finally, Hoffman stressed that
    companies like his must be willing to make mid- to long-
    term business commitments to indigenous firms.

    ¶13. (SBU) Hoffman admitted that his company's worldwide
    procurement practices appear contradictory to the goals
    outlined above, in that ChevronTexaco, as a
    multinational corporation, pursues a policy of
    "strategic sourcing." ChevronTexaco tries as much as
    possible to do business with suppliers and service
    companies that can provide products and services
    worldwide, rather than to have its regional business
    units enter into multiple contracts for the same item.
    Chevron Nigeria's Hoffman said that 90 percent of his
    company's overall spending in terms of dollar value and
    employee time goes toward 10 percent of its contracts.
    In other words, Hoffman said, Chevron tends to do
    business with "the big boys" and large contracts.
    Nonetheless, ChevronTexaco aims to leverage its
    worldwide strategic sourcing by encouraging its major
    suppliers to look to Nigeria as a place to establish
    manufacturing, fabrication or servicing bases.  In 2003
    Chevron Nigeria brought 14 of its biggest suppliers to
    Nigeria for site visits and discussions centered on
    possible establishment of operations here, a result of
    which would give Chevron reason to continue or expand
    its contracts with these suppliers, all the while
    meeting local content rules of one of its key markets.

    --------------------------------------------
    LEVERAGING LOCAL CONTENT FOR U.S. BUSINESSES
    --------------------------------------------

    ¶14. (SBU) CONGEN and USEXIM staff discussed with
    Chevron's supply chain team the opportunities for
    American businesses in Nigeria in the context of the
    local content requirements.  ECONOFF also discussed the
    same with NAPIMS Group Managing Director Phillip Chukwu
    and a group of managers from DPR.  It may appear that
    local content rules could thwart U.S. business
    opportunities by limiting access to Nigerian projects.
    But it was acknowledged by both corporate and
    government officials that Nigeria lacks capacity to
    provide significant local content in part because in
    the near to mid-term the GON and domestic firms will
    lack the financial wherewithal to make significant
    investments in domestic capacity.

    ¶15. (SBU) COMMENT: Chukwu admits extensive foreign
    investment is needed to sustain and grow the petroleum
    sector, especially Nigeria's fledgling gas industry.
    Accordingly, potential exists for American firms to
    take advantage of the development of local content
    standards in Nigeria in several arenas, by providing
    input for local fabrication, facilities and skills
    training for domestic refurbishing businesses, and
    technical partnerships for service contracts.  Broader
    ventures might include establishing a Nigerian presence
    along the lines of Chevron's strategic sourcing
    concept.

    ¶16. (SBU) COMMENT CONTINUED. Maureen Scurry of USEXIM
    noted that USEXIM can help finance American training
    programs in Nigeria.  This seems to be a little known
    or contemplated concept here.  Both corporate and
    government representatives agreed training needs are
    great and will be ongoing in Nigeria; American
    companies may want to take advantage of the opportunity
    to provide such training with USG assistance.  American
    supply and service firms that can manage the ongoing
    challenges of infrastructure, political risk, and
    security in Nigeria may have a unique opportunity in
    the coming years to capitalize on the inevitable march
    resulting in greater local content, all the while
    improving Nigeria's domestic capacity, which will
    ultimately improve the country's overall economic
    footing and provide opportunities for investment in
    other sectors. END COMMENT.

    HINSON-JONES

`