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World Bank Document Independent Power Projects in Sub-Saharan Projects Africa Independent Power Public Disclosure Authorized Public Disclosure Authorized DIRECTIONS IN DEVELOPMENT Energy and Mining Eberhard, Gratwick, and Antmann Morella, Eberhard, Independent Power Projects in Public Disclosure Authorized Sub-Saharan Africa Lessons from Five Key Countries Anton Eberhard, Katharine Gratwick, Elvira Morella, and Pedro Antmann Public Disclosure Authorized Independent Power Projects in Sub-Saharan Africa DIRECTIONS IN DEVELOPMENT Energy and Mining Independent Power Projects in Sub-Saharan Africa Lessons from Five Key Countries Anton Eberhard, Katharine Gratwick, Elvira Morella, and Pedro Antmann © 2016 International Bank for Reconstruction and Development / The World Bank 1818 H Street NW, Washington, DC 20433 Telephone: 202-473-1000; Internet: www.worldbank.org Some rights reserved 1 2 3 4 19 18 17 16 This work is a product of the staff of The World Bank with external contributions. The findings, interpreta- tions, and conclusions expressed in this work do not necessarily reflect the views of The World Bank, its Board of Executive Directors, or the governments they represent. The World Bank does not guarantee the accuracy of the data included in this work. The boundaries, colors, denominations, and other information shown on any map in this work do not imply any judgment on the part of The World Bank concerning the legal status of any territory or the endorsement or acceptance of such boundaries. Nothing herein shall constitute or be considered to be a limitation upon or waiver of the privileges and immunities of The World Bank, all of which are specifically reserved. Rights and Permissions This work is available under the Creative Commons Attribution 3.0 IGO license (CC BY 3.0 IGO) http:// creativecommons.org/licenses/by/3.0/igo. Under the Creative Commons Attribution license, you are free to copy, distribute, transmit, and adapt this work, including for commercial purposes, under the following conditions: Attribution—Please cite the work as follows: Eberhard, Anton, Katharine Gratwick, Elvira Morella, and Pedro Antmann. 2016. Independent Power Projects in Sub-Saharan Africa: Lessons from Five Key Countries. Directions in Development. Washington, DC: World Bank. doi:10.1596/978-1-4648-0800-5. License: Creative Commons Attribution CC BY 3.0 IGO Translations—If you create a translation of this work, please add the following disclaimer along with the attribution: This translation was not created by The World Bank and should not be considered an official World Bank translation. The World Bank shall not be liable for any content or error in this translation. Adaptations—If you create an adaptation of this work, please add the following disclaimer along with the attribution: This is an adaptation of an original work by The World Bank. Views and opinions expressed in the adaptation are the sole responsibility of the author or authors of the adaptation and are not endorsed by The World Bank. Third-party content—The World Bank does not necessarily own each component of the content contained within the work. The World Bank therefore does not warrant that the use of any third- party–owned individual component or part contained in the work will not infringe on the rights of those third parties. The risk of claims resulting from such infringement rests solely with you. If you wish to reuse a component of the work, it is your responsibility to determine whether permission is needed for that reuse and to obtain permission from the copyright owner. Examples of components can include, but are not limited to, tables, figures, or images. All queries on rights and licenses should be addressed to the Publishing and Knowledge Division, The World Bank, 1818 H Street NW, Washington, DC 20433, USA; fax: 202-522-2625; e-mail: pubrights@ worldbank.org. ISBN (paper): 978-1-4648-0800-5 ISBN (electronic): 978-1-4648-0801-2 DOI: 10.1596/978-1-4648-0800-5 Cover photo: © Dana Smillie / World Bank. Further permission required for reuse. Cover design: Debra Naylor, Naylor Design, Inc. Library of Congress Cataloging-in-Publication Data has been requested. Independent Power Projects in Sub-Saharan Africa • http://dx.doi.org/10.1596/978-1-4648-0800-5 Contents Foreword xvii Acknowledgments xix About the Authors xxi Executive Summary xxiii Abbreviations xlix PART 1 Power Generation in Sub-Saharan Africa 1 Chapter 1 Introduction 3 The Challenges Faced by Sub-Saharan Africa’s Power Sector 3 Importance of Private Sector Participation and the Role of Independent Power Projects 6 Importance of Investment Flows from Development Partners and Emerging Financiers 7 Scope of This Study 8 Methodology 8 Data Limitations 9 Notes 10 References 10 Chapter 2 Investment in Power Generation in Sub-Saharan Africa: An Overview 11 Current Power Generation Systems in Sub-Saharan Africa 11 Power Generation Capacity Additions over the Past 20 Years 11 Independent Power Projects 14 Chinese-Supported Power Generation Projects 18 Who Has Funded What? 18 Notes 28 References 29 Chapter 3 Factors that Support Independent Power Projects and Their Success 31 Introduction 31 Independent Power Projects in Sub-Saharan Africa • http://dx.doi.org/10.1596/978-1-4648-0800-5 v vi Contents Power Sector Reforms and Independent Power Projects 32 The Importance of Independent Regulation 36 The Importance of Planning, Procurement, and Financial Sustainability 38 A Framework for Understanding the Enabling Environment for IPPs 41 The Performance of Five Countries 43 Notes 45 References 45 Chapter 4 Independent Power Projects: An Analysis of Types and Outcomes 47 Introduction 47 Ownership and Financing Structures 48 The Role of Development Finance Institutions 53 Risk and Ways to Mitigate It 53 Technology Options: A Rise in Independent Power Projects Using Solar and Wind Energy 63 Procurement and Contracting Mechanisms 68 Notes 86 References 87 Chapter 5 Conclusions 89 Introduction 89 Five Main Conclusions 90 PART 2 Five Country Case Studies 97 Chapter 6 Case Study 1: Kenya’s Electric Power Promise 99 Introduction 99 Kenya’s Electricity Sector: An Overview 100 Independent Power Projects, Emergency Power Projects, and Publicly Sponsored Power Plants 109 Emerging Renewable Technologies in Kenya 112 Independent Power Plants: Risk Mitigation Mechanisms and Other Contingencies 115 The Public Sector Making Way for the Private Sector, or a Contested Playing Field? 116 Conclusions and Recommendations 117 Annex 6A The Initial 5,000+ MW Program: An Overview of Targets and Timelines 119 Notes 120 References 123 Independent Power Projects in Sub-Saharan Africa • http://dx.doi.org/10.1596/978-1-4648-0800-5 Contents vii Chapter 7 Case Study 2: Independent Power Projects and Power Sector Reform in Nigeria 127 Introduction 127 Nigeria’s Electricity Sector: An Overview 128 State Investment in Power Projects in Nigeria 142 Independent Power Project Investments in Nigeria 143 Chinese-Funded Projects 149 A New Role for Renewable Energy 151 Conclusions 152 Notes 155 References 156 Chapter 8 Case Study 3: Investment in Power Generation in South Africa 159 Introduction 159 South Africa’s Electricity Sector: An Overview 160 Eskom 164 Other Electricity Generation Providers in South Africa 171 Public versus IPP Investment, Direct Negotiations versus Competitive Bids, and Thermal versus Renewables 184 Conclusions 186 Notes 189 References 190 Chapter 9 Case Study 4: Power Generation Results Now, Tanzania! 193 Introduction 193 Tanzania’s Electricity Sector: An Overview 194 IPTL and Songas, and the Next Generation of Independent Power Projects 205 Future Projects, Public and Private 212 Conclusions 216 Annex 9A Cost Comparison, TANESCO and Independent Power Projects 218 Annex 9B IPTL and Songas Project Costs, Tanzania 219 Annex 9C ICSID Tribunal, IPTL 220 Annex 9D Production-Sharing Agreement, TPDC and PanAfrican Energy 221 Notes 222 References 226 Chapter 10 Case Study 5: Power Generation Developments in Uganda 227 Introduction 227 The History and Structure of Uganda’s Electricity Sector 228 Independent Power Projects in Sub-Saharan Africa • http://dx.doi.org/10.1596/978-1-4648-0800-5 viii Contents Current Attributes and Recent Performance of the Electricity Sector 240 Measuring the Outcomes 256 Notes 261 References 264 Appendix A Total Investments in Electric Power Generation in Sub-Saharan Africa 265 Appendix B Government Investments in Electric Power Generation in Sub-Saharan Africa 271 Appendix C Investments in Electric Power Generation in Sub-Saharan Africa Financed by Official Development Assistance and Development Finance Institutions 273 Appendix D Investments in Electric Power Generation in Sub-Saharan Africa Financed by Chinese Sources 279 Appendix E Independent Power Projects in Sub-Saharan Africa 283 Boxes 1.1 Definition of Independent Power Projects 6 3.1 Legislation to Promote Sector Competition: Examples from Five Countries 37 4.1 Mitigating the Risk of an Independent Power Project: The Case of Azura, Nigeria 57 4.2 Independent Power Projects Using Hydropower, Geothermal, and Biomass 65 4.3 The South African Experiment with Renewable Energy Feed-in Tariffs 66 4.4 Direct Negotiations and Competitive Procurement in Uganda 73 4.5 A Comparison of Competitive Tenders and Direct Negotiations in Kenya and Tanzania 74 4.6 How the Brazilian Energy Auction Works 83 10.1 Major Institutions in Uganda’s Power Sector 229 Figures ES.1 Grid-Connected Generation Capacity: Sub-Saharan Africa, 1990–2013 xxv ES.2 Investments in Power Generation, Five-Year Moving
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