Smoke-filled skies loom over a destroyed tank on the south side of Baghdad. (photo: Carolyn Cole/LA Times)
How Exxon,
Under Rex Tillerson, Won Iraqi Oil Fields and Nearly Lost Iraq
By Missy Ryan and Steven
Mufson, The Washington Post
10 January 17
When
Ashti Hawrami, the oil minister from Iraq’s largely autonomous Kurdistan
region, unfurled a map of untapped oil fields for a team of ExxonMobil
officials in the spring of 2011, they saw possibility and profit.
The
minister pointed to the blocks that had already been taken by other foreign firms
as Iraqi Kurdistan, long at odds with the country’s central government over oil
and territory, raced to establish itself as a player on world oil markets. He
also showed them the fields that were still up for grabs. Tell me what you
want, and we can start negotiating, Hawrami said, according to one former Exxon
official who attended the meeting.
It was
the start of months of hurried talks blessed by ExxonMobil’s chief executive,
Rex Tillerson, and other senior executives back in Dallas. The company was making
a high-stakes gamble that new agreements would pay off handsomely if the
northern region held billions of barrels of accessible oil.
But
the deal overseen by Tillerson, whose confirmation hearings to become secretary
of state begin Wednesday, defied U.S. foreign policy aims, placing the
company’s financial interests above the American goal of creating a stable,
cohesive Iraq. U.S. diplomats had asked Exxon and other firms to wait, fearing
that such deals would undermine their credibility with Iraqi authorities and
worsen ethnic tensions that had led Iraq to the brink of civil war. A law
governing nationwide oil investments was tied up in parliament, and Iraqi
officials were rejecting the Kurdistan regional government’s authority to
export oil or cut its own deals.
When
word of Exxon’s partnership with the Kurds reached Washington, the State
Department chided the oil firm: “When Exxon has sought our advice about this,
we asked them to wait for national legislation. We told them we thought that
was the best course of action,” then-spokeswoman Victoria Nuland said.
Exxon’s
2011 exploration deal with the Kurdistan region provides a window into how
Tillerson, President-elect Donald Trump’s nominee to lead the State Department,
has approached doing business in one of the world’s most risky, complicated
places, where giant energy deals can have far-reaching political effects.
The
episode of petro-diplomacy illustrates Exxon’s willingness to blaze its own
course in pursuit of corporate interests, even when it threatens to collide
with U.S. foreign policy.
When
Iraq’s central government threatened to throw Exxon out of much larger,
established operations in the south, Tillerson personally intervened, using his
executive clout to smooth things over with authorities in Baghdad while making
clear his company would weather the political fallout in pursuit of its central
goal: a profitable deal.
“It’s
a big company that looks for ways to make money like all big companies,” Philip
H. Gordon, a former White House coordinator for Middle East policy, said of
Exxon. He said the controversial Iraqi Kurdistan contracts reflected a natural
corporate instinct to act in the interest of shareholders, not the U.S.
government.
If
Tillerson is confirmed, “I would hope that he’d realize that he’s serving the
interests of the country and not the interests of Exxon,” said Gordon, now a
fellow at the Council on Foreign Relations.
Lawmakers
will weigh Tillerson’s decades-long track record at Exxon this week
when they convene to consider his nomination to be the next U.S. foreign policy
chief.
The
world’s largest oil firm, Exxon has long exercised formidable clout in
countries where it does business. The company has not shied away from
controversy, inking deals with autocratic governments and speaking out against
sanctions, such as those the United States has imposed on Russia, that hurt its
bottom line.
Exxon
was one of the firms hungry to do business in Iraq, closed to outside investors
for decades, after the ouster of Saddam Hussein in 2003. By 2009, the Iraqi
government had put its top fields on offer. While the terms of those deals were
seen as stingy — paying $1.50 to $2 a barrel — firms signed on anyway, betting
that a foot in the door would lead to other, more-lucrative opportunities.
Exxon and its partner Shell snared the rights to West Qurna, a massive field in
the country’s south.
But
Iraq, looking to retain tight control of precious resources after years of U.S.
occupation, never offered the more advantageous deals.
“Some
said, ‘Let’s take this as an appetizer, not the main course,’ ” said Fadel
Gheit, an oil analyst for Oppenheimer & Co. “Then they were told, ‘No, this
is the course.’ ”
At
their sprawling, bunker-like embassy in Baghdad, American diplomats heralded
the new deals as a validation of U.S. ambitions to transform Iraq into a stable,
business-friendly outpost in the Middle East. If it was an American company
landing one of the country’s biggest fields, all the better.
But
Exxon officials were growing increasingly dismayed by early 2011 as they saw
their narrow profit margin in southern Iraq all but disappear. To make matters
worse, the Iraqi government was constantly in arrears. By the end of that year,
it owed Exxon about $1 billion, according to a former Exxon official.
Ali
Khedery, who advised U.S. officials in Iraq before joining Exxon in 2011,
argued that the Kurdistan region was one way to offset the disappointment in
southern Iraq.
Oil
reserves in the northern region had not been explored, but its basins appeared
to make it “one of the world’s most promising regions for the future [of]
hydrocarbon discovery,” one paper said, with potentially as much as
55 billion untapped barrels.
In its
capital city of Irbil, the region’s government portrayed itself as a
Western-friendly alternative to Baghdad, where car bombs and militiamen
continued to keep outside investors away. For Kurdish leaders, establishing the
region in world oil markets was a crucial step toward the dream of eventual
independence.
Beginning
in 2002, Kurdish leaders had welcomed small firms that were willing to brave an
untested environment. By 2011, as Kurdish ties with neighbor Turkey improved, a
hoped-for export pipeline looked more likely.
But
much about doing business in Iraqi Kurdistan remained laden with risk. Since
2003, Kurds had sparred with the Arab-led government in Baghdad over disputed
areas and budget revenue. In the years leading up to Exxon’s deal, Kurdish
peshmerga troops had come close to open conflict with the Iraqi army, forcing
the United States to intervene.
“This
was part of a bigger game of political leverage that was going on since the
overthrow of Saddam in 2003, taking advantage of a weak central government, an
ambiguous constitution,” Denise Natali, an expert on northern Iraq at National
Defense University in Washington, said of Kurdish attempts to expand influence
through oil deals.
But
Khedery said the region remained attractive. “Despite it being far from perfect
— the endemic corruption, the factionalism — the bottom-line assessment was
that Kurdistan was going to be a much better operating environment than the
Arab portion of the country,” he said.
In
April 2011, after internal briefings about Iraq to senior Exxon officials, a
team from Exxon and Shell met with Kurdish officials. Kurdish and company
executives eventually settled on six fields that would be explored by the
foreign firms. Afraid of losing out to other firms, Exxon raced to finish the
talks. After Shell dropped out at the last minute, the company concluded the
contract in October 2011.
When
news of the deal broke, some U.S. officials felt they were not given adequate
notice by Exxon. Former company officials dispute that account. Either way,
diplomats were worried the deal would disrupt parliamentary negotiations over
the oil law and undercut their clout with Prime Minister Nouri al-Maliki at a
particularly sensitive time. For months, U.S. and Iraqi officials had been
holding tense talks over a proposal to leave thousands of American troops
beyond a departure deadline at the end of 2011. Only a few days after Exxon
signed its deal, President Obama abruptly announced the talks had failed: All
U.S. troops would be gone by year’s end, officially bringing the war to an end.
In
assessing the fallout from the Kurdistan deal, U.S. diplomats were worried Iraq
would throw Exxon out of the south, where they had also signed on to a deal
that would be important in helping Iraq increase production across its biggest
fields.
U.S.
officials had long cautioned American firms against signing deals with Iraqi
Kurdistan before the oil legislation was completed, but they stopped short of
telling them they could not do them — they had no power, former officials said,
to do so.
“The U.S.
government position with American and other firms seeking to engage in the
north was to explain the complexities, warn of the unsettled nature of the laws
applying to that, point out the complications in trying to get any oil
discovered and produced out of Kurdistan, given the position of the Iraqi
government,” said then-Ambassador James Jeffrey, who now acts as an adviser to
Exxon.
Adding
to the friction, three of Exxon’s new blocks were in areas claimed by both
Baghdad and Irbil, outside of the regional borders set before 2003. Despite the
unresolved status of those areas, Kurdish officials argued that they, not the
Iraqi government, controlled those plots. Exxon lawyers concluded contracts for
those areas would be legal.
When
Hussein al-Shahristani, who was Iraq’s oil minister at the time Exxon signed
its deal for West Qurna, learned about the deal, he was irate.
“The
position of the Iraqi government was always to reject this, and the company was
informed that this was a violation of Iraqi law,” Shahristani said. While Iraq
sought to deal with foreign firms “with trust and good intentions,” he said,
“this move by ExxonMobil shook our confidence in them.”
In
securing the Exxon deal, Iraqi Kurdistan had wooed one of the largest U.S.
companies and got it to lay claim to disputed areas, creating a foundation for
greater independence and clearing a path for other companies, including
Chevron, to follow.
“People
said, ‘This is a boomtown.’ You couldn’t talk rhyme or reason, they were so
excited about it,” Natali said of companies’ view of their Kurdistan oil
prospects. “They created a bubble that ignored history, domestic politics,
geopolitics.”
Bayan
Sami Abdul Rahman, Irbil’s envoy to the United States, said that Kurdistan’s
oil contracts “have put the Kurdistan region on the global energy map and have
helped to internationalize our economy after years of enforced isolation.”
Officials
in Baghdad saw Exxon’s decision to sign up for blocks such as Bashiqa, which
lies entirely outside the current Kurdistan regional borders, as siding with
Kurds in the land dispute.
“When
any company comes and works in those areas, it’s clear that it’s contributing
in inflaming a conflict and pouring oil on the flames,” Shahristani said.
Alan
Jeffers, a spokesman for Exxon, said the company followed “all laws and
regulations” in pursuing the Iraqi Kurdistan deal. “Issues involving management
of hydrocarbon resources in the Kurdistan region of Iraq are for the Iraqi
people to resolve,” he said.
Shahristani,
who by the fall of 2011 had become deputy prime minister for energy matters,
advised Maliki to withdraw the Qurna contract and take Exxon to international
arbitration.
As
Baghdad made threats, Exxon tried to convince Iraqi officials that greater
production would benefit the country in the long run. In January 2013,
Tillerson flew to Baghdad and met with Maliki himself.
There,
Tillerson told Maliki that Exxon was “prepared to stay and operate in both
[parts of the country] and it was the Iraqi government’s choice,” said a former
senior State Department official who spoke on the condition of anonymity
because of the sensitivity of the issue. “He didn’t blink. In the end, he came
away with that deal.”
By
that point, the stakes in assessing a potential expulsion were already lower
for Exxon, which had begun selling off parts of its unprofitable West Qurna
interests. The Iraqi Oil Ministry, despite its threats, never brought legal
action against Exxon, but it did seek to exclude Exxon from a later auction and
push it out of the southern production-boosting project.
“I
think a big part of it was Tillerson,” the former official continued. “He
personally went out and negotiated with all the individuals including Maliki
and explained why it was in their interest to have the largest private oil
company in the world operating in Iraq and the negative signals that would be
sent if they would leave them out.”
Even
after weathering the blowback from Baghdad, disappointing exploration results
prompted Exxon to pull out of three of its six northern blocks in early 2016,
walking away after spending over $500 million, according to the Iraq Oil
Report. Like other firms, Exxon had found that Iraqi Kurdistan was not as good
a deal as hoped.
One
official with a rival oil company, speaking on the condition of anonymity to
discuss a another major energy firm, said companies such as Exxon approach
doing business in risky, politically unsettled places such as Iraq with a
decades-long perspective. “You may not like the administration in any
particular country today, but in 10 years time there’s going to be a different
government,” he said.
In the
end, he said, big firms “have to go to where the oil is and then manage the
politics around that.”
C 2015 Reader Supported News
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The master class has had all to gain and nothing to lose, while the subject
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