Europe's Failed Natural Gas Strategy: Gazprom Hopes to Build Second Baltic Sea Pipeline
With the planned Nabucco natural gas pipeline in southern Europe hitting snag after snag, Russian natural gas giant Gazprom is considering the construction of a second Baltic Sea pipeline to go with the just-finished Nord Stream. With unconventional natural gas from the US flooding the market, however, the strategy is not without risk.
Seven years later, it is now clear who won the duel. When the government of Social Democratic Chancellor Gerhard Schröder came to an end in 2005, both he and his foreign minister, Green Party éminence grise Joschka Fischer, embarked on second careers as energy lobbyists.
Fischer is an advisor to Nabucco, the consortium favored by the European Union, which also includes German electric power company RWE. The Nabucco pipeline is intended to transport gas from the Caspian Sea region, along a 3,900-kilometer southern route to Baumgarten in Austria, bypassing Russia in the process. But not a single meter of the pipeline has yet been laid, and that will likely remain the case. The Nabucco project will not be implemented as planned.
Three weeks ago, Hungary's MOL Group voiced significant doubts about the project, and now another consortium member is thinking of pulling out. RWE executives have already prepared politicians in Brussels and Berlin for the worst case in recent weeks. They haven't made a final decision yet, but the chances that the company will remain committed to Nabucco are not good.
One reason is that the estimated total cost of over 15 billion ($19 billion) is more than twice as high as the original projection. Another is that potential suppliers Azerbaijan and Turkmenistan have not yet provided definitive commitments to supply natural gas to the pipeline.
Turmoil in the European Natural Gas Market
Indeed, it is beginning to look as though the erstwhile competition between the two pipelines has been overwhelmingly won by Nord Stream. Schröder's team has just decided to expand the Baltic Sea pipeline's capacity.
The owners, Gazprom, E.on-Ruhrgas, Wintershall, Gaz de France and the Dutch firm Gasunie, are investigating the construction of a second pipeline through the Baltic Sea, which is likely to be built close to the existing line. The end result would be a dual pipeline that could begin transporting additional billions of cubic meters of gas from Siberia directly to northern Europe in seven to eight years.
The scenario that seems to be unfolding -- an expansion of northern supply lines and a downsizing of southern routes -- will bring turmoil to the entire natural gas market in Europe. The European Union had conceived Nabucco as a way to broaden its source of supply. Instead, however, the apparent failure of Nabucco and the expansion of the Baltic route threatens to make the EU more dependent than ever on Russian sources.
Europe already buys about a quarter of its natural gas from Russia with Germany relying on the country for 35 percent of its needs. This makes Germany vulnerable.
So far, Moscow has consistently proven to be a reliable supplier. Officials at Gazprom say that a pipeline "is a delivery promise cast in steel," and they insist that no company is going to invest billions in a pipeline and then choose not to use it.
But with each additional cubic meter of gas, the concerns are growing that the Russians will use their natural resources as a means of applying pressure, and that natural gas will become a political weapon. "There is no national security without energy security," says European Energy Commissioner and Nabucco advocate Günther Oettinger. And Gazprom has wielded its immense power in the past -- by, for example, shutting off Ukraine's gas supply for several days in January 2006, cutting supplies to Europe in the process.
The construction of Nabucco was intended to rule out such a frosty scenario. Shareholders from Germany, Austria, Hungary, Romania, Bulgaria and Turkey, flanked by their national governments and EU representatives, formed the consortium nine years ago in Vienna. A visit to the State Opera gave the participants the peculiar idea to name the project after the Verdi opera, famous for its prisoners' chorus.
It was clear from the start that the fate of the project depended on whether the operators of the Shah Deniz 2 field would supply the pipeline with gas. The giant field is in the Caspian Sea, about 70 kilometers south of the Azerbaijani capital Baku, and the drilling rights are owned by the State Oil Company of Azerbaijan (SOCAR) and two energy companies, BP and Statoil. The negotiations have dragged on for years and have yet to reach a resolution.
As a result, Nabucco shareholders now believe that only a smaller version of the pipeline is realistic, if at all. "Nabucco West," as this version is informally known, would be a mere 1,300 kilometers long and would only establish the connection from the Turkish-Bulgarian border to Austria. Farther east, the gas would be transported through the Trans-Anatolian Pipeline (TANAP), a project that is being spearheaded by SOCAR and is also still in the planning stages.
Even if this version is implemented, Europe will have failed to meet its goal of having control over its own supply route.
Instead, the Russians are now pushing ahead with the expansion of the northern route. In recent weeks, they have informed political leaders in all the affected countries, including Poland, Finland and Germany, about the plan. According to one participant, no one has yet raised any major concerns or objections. After all, the construction of the first pipeline has proceeded without a hitch thus far, despite the many misgivings voiced ahead of the project.
Gazprom's Risky Strategy
It was British Prime Minister David Cameron who initiated the unexpected expansion, after traveling to Moscow late last year to discuss possible cooperation in the energy sector. The United Kingdom meets most of its needs with its own gas, but North Sea reserves are gradually running out, unlike Siberian reserves. The talks triggered the idea of a second Baltic pipeline at Gazprom.
Last Friday, Nord Stream shareholders agreed on final details in Frankfurt. The plan calls for a second double line. "By the end of the year," says Nord Stream Managing Director Matthias Warnig, "we want to present a feasibility study in which all the key issues, such as environmental aspects, cost effectiveness and the route are discussed." If auditors don't discover any major obstacles, Warnig adds, there will be no reason not to expect a construction decision by early 2013.
The construction of the second Baltic pipeline would be a triumph for Russian President Vladimir Putin. At the same time, though, the strategy being pursued is nothing short of audacious. Indeed, Gazprom is seeking to expand its infrastructure at a time when the natural gas business is undergoing radical change worldwide. The market for the fuel is losing what has long been its most salient feature: scarcity.
- Part 1: Gazprom Hopes to Build Second Baltic Sea Pipeline
- Part 2: America's Growing Role in the Natural Gas Market
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