Renewable energy: Investing in Africa

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1 1. Who is responsible for energy policy? 2. To what extent have generation, transmission and distribution activities been unbundled? 3. Who owns and operates the (grid-connected) generation, transmission and distribution assets? 4. Who is responsible for supplying electricity to consumers? The Ministry of Energy and Petroleum (MoE). Partial unbundling of the state utility, the Power and Lighting Company ( Power), occurred following the Electric Power Act 1997 consisting of: transfer of Power's generation assets to the Electricity Generating Company (KenGen), which was partially privatised by flotation on the Nairobi Stock Exchange in 2006; establishment of independent regulator, the Electricity Regulatory Board (ERB), superseded by the Energy Regulatory Commission (ERC) following the Energy Act 2006; and a succession of IPPs since The Energy Act 2006 created a partial framework for the unbundling of distribution and supply. However at present these activities remain within Power, which acts as bulk purchaser, in addition to the role of system operator. The Energy Bill 2015 contains a similar structure to the Energy Act Generation: KenGen and IPP project companies. In addition, (i) steam fields are owned by the Geothermal Development Corporation (GDC), established pursuant to the Energy Act 2006 to channel government funding into the development of steam fields so as to accelerate the growth of geothermal power. GDC sells steam to KenGen and to IPPs; (ii) the assets comprised in grid-connected rural electrification projects implemented by the Rural Electrification Authority (REA) belong to the REA while Power is responsible for operation and maintenance. Transmission and distribution: Power and Electricity Transmission Company Limited ("Ketraco"), also established pursuant to the Energy Act 2006 to construct, operate and maintain new, publicly funded, high voltage transmission networks. Principally the ERC, the MoE and Power. The Energy Bill 2015 contains a specific obligation on the Government to "facilitate the provision of affordable energy services to all persons in ". 5. Who is the power purchaser under IPPs? Power.

2 6. Is the consumer tariff costreflective? 7. Is there an independent regulator? If so, which activities are subject to economic regulation? 8. Does the country belong to a regional power pool and are any interconnectors in place? 9. Who is responsible for planning and procuring additional capacity to meet demand? Broadly, yes, subject to a "lifeline tariff" for those whose consumption is below a certain level. The principle of costreflectivity is reiterated in the Sessional Paper No.4 on Energy (2004). However not all system costs are passed through to consumers. In particular the cost of investment in new transmission assets and feed in tariff costs for renewable energy to the extent that grid parity is not achievable. Yes, the ERC, established pursuant to the Electricity Act 2006, which replaced the ERB. As well as the consumer tariff it regulates generation tariffs (as reflected in the relevant PPA in the case of an IPP) and Power's transmission and distribution charges. Yes. It is a member of the Eastern Africa Power Pool (EAPP). There is an existing interconnector with Uganda. In addition, the following interconnectors are under development: Second -Uganda Interconnector: The 127km - Uganda electricity transmission line, which is 60% complete, will also be funded by the AfDB, is expected to be completed in December Tanzania Interconnector: the 600km line, which will be jointly financed by the AfDB and the n government, is expected to be completed by Ethiopia Interconnector: Siemens has been awarded a contract by the Ethiopian Electric Power Corporation and the Electricity Transmission Co. to develop a 1,000km high voltage direct current transmission line between Ethiopia and. The interconnector will transmit environmentally friendly hydroelectricity from Ethiopia to. The project, which is estimated to cost $450 million will be financed by the World Bank and the AfDB, is scheduled for operation in Q4 of Under the Energy Act, the ERC is given the task of producing an indicative national energy plan. In 2009, the ERC established a committee responsible for carrying out medium to long term planning of the power sector through an annual 20 year rolling Least Cost Power Development Plan ("LCPDP"). Until 2011 the plan was updated annually; from 2011 it has been updated every two years. For this purpose the ERC convenes a planning committee including Power, KenGen, Ketraco and the MoE. Power is the originator of the LCPDPs. There are no explicit criteria

3 for the allocation of new build opportunities, but it is reported that in practice KenGen has a right of first refusal. If KenGen cannot raise the requisite funding, the private sector will be invited to participate via an international competitive bidding process. 10. What is the installed generating capacity? Is it adequate to meet existing demand? What is the energy generation mix? (In the case of renewables, please identify the technologies) 11. What is the projected demand and what additional capacity is planned to meet it? What is the proposed energy mix? (In the case of renewables, please identify the technologies) 12. Is there a history of IPPs (excluding the renewable energy sector (other than large hydro))? If so, what procurement method was used? How have they performed? According to Power's Annual Report for the year ending June 2015, had a total installed generation capacity at June 2015 of 2,299MW. The generation mix is as follows: Thermal, 35.99% Hydro, 35.7% Geothermal, 26.02% Other (Cogeneration, 1.13% Wind, 1.13%, Solar 0.02%). In 2013 the Government launched a capacity expansion programme to bring an additional 5,000MW of generation capacity on-stream within 40 months. However it has become clear that this target will not be met, as 3,000MW of the total (consisting of thermal projects) has been cancelled or delayed. This programme was based on projected demand of around 21,000MW by The prevailing view appears to be that the demand projections were too high. Indeed it is reported that at present installed capacity exceeds peak demand, although it is clear that in the longer term demand will increase substantially. The proposed capacity increases referred to above were based on demand projections. Of the additional 5,000MW targeted for 2017, the remaining 40% consisted of renewables, including the 300MW Lake Turkana wind project which reached financial close in The remainder consisted of geothermal. According to the LCPDP, additional capacity in the longer term is likely to come from the same sources, with nuclear being introduced into the energy mix around However a number of countries have been revising their projected energy mix with the fall in the cost of solar PV equipment, and it seems likely that will follow suit. Yes. The first IPP achieved its commercial operation date in 2001, and 11 IPPs are currently in operation. Although they represent only around 25% of installed capacity, in future the share for IPPs is expected to be much greater. The projects have followed the International Competitive Bidding (ICB) model, with the procurement being conducted

4 13. Is there a specific programme for procurement of grid-connected renewable energy? If so please provide details (including who will manage the process, the procurement method, criteria to be applied, process efficiency tools such as standardised documentation, the PPA term offered, incentives/comfort for investors including government guarantees and multilateral support instruments, responsibility for grid connection, other assistance e.g. in obtaining finance or with bid costs, the scale and structure of the programme, the status of the programme). by Power. In general the projects have performed will, outperforming comparable projects directly procured by KenGen. The Lake Turkana wind project on the other hand was initiated as an unsolicited bid directly with the MoE. Yes. Section 103 of the Energy Act 2006 obliges the Minister to promote the development and use of renewable energy technologies, and confers a range of incidental powers. has a Feed in Tariff (FiT) Policy in relation to wind, biomass, small-hydro, geothermal, biogas and solar resource generated electricity. It was introduced in 2008 and did not initially include geothermal, biogas or solar, which were added in The particular aspects of the regime comprise: a FiT tariff (which varies depending on the type of technology and the plant capacity); a standardised PPA for small projects (i.e. under 10MW); a restricted procurement process for small projects, and a standardised competitive bidding process for other projects administered by the MoE (although the PPA is entered into and must be negotiated with KPLC); an embedded generation model for small projects; the costs on interconnection must be borne by the developer; a limit on KPLC's entitlement to recover the tariff paid from consumers (generally 70%), designed to enable it to remain revenue neutral. Significant proposals relating to policy formulation for renewable energy in the draft National Energy Policy 2015 include: that the Rural Electrification and Renewable Energy Corporation ((RERC) a successor organisation to the current REA should become the lead agency for development of renewable energy resources other than geothermal and large hydro. Its proposed functions would include the development and updating of a renewable energy master plan, which will take into account the national energy policy produced by the MoE; the establishment of an inter-ministerial Renewable Energy Resources Authority Committee (RERAC) to advise the Cabinet Secretary on matters including criteria for allocation to investors of energy resource areas, and licensing of renewable energy resource areas.

5 14. Please outline the legal framework applying to any programme. Is it reasonably clear? It was recently reported that the MoE is considering introducing an auction system for renewable energy projects, which could be implemented as early as January 2017, and that it is in the process of drafting new regulations to be implemented in January If so, this regime would presumably displace existing FiT projects as it will need scale in order to be effective, although, as in other countries, the MoE will also need to find a way of managing the expectations of developers who have sunk development costs into developing projects under the FiT regime. According to the 2015 draft Energy Policy, the following expressions of interest had been received for the following technologies: wind (23), biomass (6), small hydro (20); sea wave (1). Comprehensive information on the status of these projects is not readily available. The framework for the FiT programme consists principally of the FiT Policy, issued by the MoE. The PPP Act 2013 is also potentially relevant from a procurement perspective. The legal framework for the projects is mainly generic, being related either to infrastructure projects or to the electricity sector, rather than being specific to renewables. Apart from establishing the institutional structure for the industry, the principal matters which it regulates are: licensing of generation, importation, exportation, transmission, distribution or supply of electricity; approval of bulk contracts for the sale of electrical energy, transmission or distribution; tariff setting and review; power of the MoE to make secondary legislation; access and compulsory purchase rights of licensees; consumer protection matters; licensing of electrical installation work; renewable energy, energy efficiency and conservation; regulation of loan products. The relevant regulations include: the Grid Code 2008 (currently being revised); the Energy (Electricity Licensing) Regulations Relevant draft legislation includes the Energy (Local Content) Regulations Public procurement laws of general application do apply to renewable projects. The relevant legislation consists principally of the Public Procurement and Disposal Act In general the legal and regulatory framework is reasonably

6 15. Have any specific issues or concerns been expressed regarding the procurement programme? 16. Is investment in transmission and distribution required in order to increase the capacity of the system? If so, is there an effective programme in place? clear and transparent. However the 2015 draft Energy Policy highlights a number of criticisms, including: lack of alignment with the 2010 Constitution; overlap of institutional roles and functions; disjointed legal and regulatory framework; incomplete implementation of past policies. There is at present some debate and uncertainty as to whether independent power projects fall within the remit of the Public Private Partnerships Act 2013 (the "PPP Act"). As the PPP Act prescribes a particular procurement regime, and brings projects within the remit of the PPP Committee, this is an area in the legislation that requires clarification. Recent on-grid renewables procurement programmes in South Africa, Zambia, Senegal and Uganda have effectively challenged whether the conventional FiT approach delivers value for money, and have suggested that an auction based competitive procurement programme, if effectively implemented, will deliver better value for money. The MoE has indicated for some time that it is aware of and is considering adopting a revised model. The first FiT project to be approved, Kinangop, was abandoned in February 2006 due to land issues. However these appear to be project-specific. Both IPPs and public generators require complementary public investment in transmission infrastructure. Ketraco was established for this purpose. There are numerous ongoing transmission upgrade projects at various stages of development being carried out by Ketraco. There have, however, been delays that have hindered IPP investment or reduced its benefits. For example, a new transmission line between Mombasa and Nairobi to transfer power from thermal stations on the coast was to have been completed by 2011 but was still not complete in It is reported that there is an estimated 100 MW of unused capacity available on the coast from such plants as Kipevu and Rabai, which is still at 50% utilization, even as Power continues to pay for emergency power in Nairobi. The distribution system currently comprises around 50,000Km of medium and low voltage lines plus substations and transformers. It is projected that by 2020, there will be 125,000Km of lines, and over 200,000 by 2030.

7 17. Is there a specific programme for the procurement of/facilitation of off-grid renewable energy? If so please provide key details. The grid does not extend to many areas, particularly in the North and East of the country. The REA was established in 2007 to implement the Rural Electrification Programme, the object of which is to provide electricity supply to areas considered not economically viable by the distribution licensee ( Power). The mandate of the REA includes: managing the Rural Electrification Programme Fund developing and updating the rural electrification master plan promoting the use of renewable energy sources implementing and sourcing additional funds for the rural electrification program managing the delineation, tendering and award of contracts for licenses and permits for rural electrification The Rural Electrification Programme is financed by the Rural Electrification Programme Fund, which is provided for under the Energy Act In rural areas, following the establishment of the REA in 2006, there has been a significant increase in the number of connections. However access to electricity in, particularly in rural areas is still low. The overall access rate is around 32% with rural access to the grid around 10% and urban access around 40%. As mentioned in the response to question 13 above, it has been proposed that functions of the REA should be transferred to a successor organisation. Further advice should be taken before relying on the contents of this summary. Clyde & Co LLP accepts no responsibility for loss occasioned to any person acting or refraining from acting as a result of material contained in this summary. No part of this summary may be used, reproduced, stored in a retrieval system or transmitted in any form or by any means, electronic, mechanical, photocopying, reading or otherwise without the prior permission of Clyde & Co LLP. Clyde & Co LLP is a limited liability partnership registered in England and Wales. Authorised and regulated by the Solicitors Regulation Authority. Clyde & Co LLP 2016

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