ATC130923: Report of the Portfolio Committee on Public Enterprises on the oversight visit to Eskom’s Medupi Power Station, dated 10 September 2013
Public Enterprises
Report of the Portfolio Committee on Public Enterprises on the oversight
visit to Eskoms
Medupi
Power Station, dated 10
September 2013
1.
Introduction
The Portfolio Committee on Public Enterprises (the
Committee) undertook an oversight visit to Eskoms
Medupi
Coal Power Station from 24 to 25 July 2013.
The main purpose of the visit to
Medupi
coal power station was to assess progress that has been made in the
construction of the power station since the last oversight visit of the
Committee, establish the reasons for the delay in construction and assess the
impact of the new labour agreements. The Committee met with the leadership of
Eskom, representatives of the main contractors, and organised labour in order
to get a balanced account of the challenges that faced the project. The
Committee also undertook a site visit of the construction site.
1.1.
Delegation
The committee delegation included the following
members:
Mr P
Maluleka
(Chairperson of the Committee, ANC), Dr GW Koornhof (ANC), Ms M
Pilane-Majake
(ANC), Mr A
Mokoena
(ANC), Ms N Michael
(DA), Mr E Marais (DA) and Mr M Nhanha (Cope).
The delegation was accompanied by the following parliamentary officials:
Mr D
Mocumi
(Committee Secretary), Ms Y
Cele
(Committee Assistant), Mr R Mnisi (Content Advisor) and
Mrs L
Bramwell
(Committee Researcher).
2.
Visit to
Medupi
Coal Power Station
The
delegation arrived at
Matimba
power station on 24
July 2013 to meet with Eskom, organised labour and contractors.
Shortly after the delegation arrived,
representatives from Eskom informed the Committee that just less than
1 000 workers of Murray and Roberts had gone on a work stoppage and had
overturned cars and set them alight. Eskom had contacted the police and the
situation was being monitored closely. Eskom stated that a full report would be
given to the Committee before the end of its visit, once the reasons for the
work stoppage were known. The meeting was chaired by Mr Dan
Marokane
,
Acting Group Executive for Eskom Group Capital, who welcomed the Committee before
handing over to Mr Roman Crookes, General Manager of the
Medupi
coal power station project.
Mr Crookes
took the Committee through a presentation providing an overview of the current
status of construction and the way forward to completion, an explanation on how
the cost position evolved, and gave an update of the technical challenges that
have delayed completion and Eskoms resolutions regarding these challenges.
2.1.
Meeting with Eskom Leadership
The Committee met the executive management of Eskom
led by Mr Dan
Marokane
and the
Medupi
project management team led by Mr Roman Crookes (Project Manager). In his
presentation he highlighted the following:
2.1.1.
Overview of the
Medupi
project
The
Medupi
coal power station is the l
argest construction project in the southern
hemisphere. There are 38 contract packages, more than 300 contractors and
subcontractors and the project was valued at R105bn. There are six coal power
generating units (800 MW each), which will produce total generating capacity of
4,800 MW. The plant will have greater efficiency than existing Eskom power
plants and will be the largest dry-cooled coal power station in the world.
Eskom has stated that the first boiler
will only be ready to produce energy to the grid by the second half of 2014,
but those working on the
Medupi
project were still
pushing for the December 2013 deadline. The commercial operational date is
usually 3-6 months after the boiler is completed, for synchronisation to be
completed. The
Mokolo
dam from the Crocodile River
will initially supply
Medupi
with its water
requirements. A number of issues were reiterated as being the major technical
challenges to completing the project on time, including technical challenges.
2.1.2.
Technical challenges causing delays
The Committee was informed that the first
synchronisation of unit six is still scheduled for December 2013, and the
workers have been motivated on working towards that target. However there were
certain technical issues that had the potential of delaying the project
further. These included the following:
Control &
Instrumentation
:
In December 2012,
Alstom
failed the Factory Acceptance Tests on the Boiler Protection System for the
third time (critical to commencing hot commissioning). The Boiler Protection
System had to undergo substantial redesign;
Post Weld Heat
Treatment (PWHT)
:
A sub-contractor of Hitachi failed to
heat-treat a large number of welds with the appropriate procedure. Multiple
welds needed to be tested and insufficiently treated welds required replacement;
Welding Procedure Qualification Record (WPQR):
A sub-contractor of
Hitachi manufactured certain high-pressure part equipment according to
incorrect weld procedures and
needed
to be replaced;
Electrical System: Access issues were
preventing contractors from completing the required work; and
Balance of Plant
Mechanicals:
Fire water system delayed by fabrication and pipe work
and compressed air pipe routing had not been completed.
2.1.3.
Interventions to remedy situation
Eskom has made several interventions to minimise further delays in the
project and was working closely with the management of the main contractors to
ensure that they bring in more experienced engineers and technicians and put in
extra hours. The company has also implemented the conditions of the contract
with regards to performance guarantees, by calling on the bond on
Alstom
. However the bond has not been called on Hitachi as
Eskom was still exploring a penalty that would be more suitable for Hitachi.
If Eskom
cancelled the contract and went with another contractor, they would have a
different design to Hitachi and this would cause more delays and the cost would
increase as well.
All the stakeholders
have agreed on the establishment of a new Partnership Agreement (PA) which will
address issues such as skills development, wage standardisation, dispute
resolution and mechanisms for dialogue.
2.1.4.
Successes in the project
Eskom
reported that unit six was back-energised by the generator transformer allowing
the plant to draw power from the 400kW distribution system.
On 24 June 2013, Eskom achieved auxiliary
boiler blow-through.
The auxiliary
boiler system provides steam on start-up.
They successfully completed turbine on-
barring
on 5 July 2013. The turbine barring gear will enable safe operation of the
turbine once the plant is running.
Direction tests of the 64 Air Cooled Condenser (ACC) fan motors
commenced in July and will be completed by 20 August.
The ACC will condense steam coming out of the
turbine so that it can be heated again in the boiler. The water expansion
project is in phase 2 and will only come on stream in 2018.
2.1.5.
Financial position of the project
It
was stated that the cost of the project rose by R13.76 billion from R91.24
billion to R105 billion since its inception.
Eskom informed the Committee that the following were
the key drivers of the changes in costs:
An increase in the
total basic costs of packages
due to e
xtensions of time
(EOT) and a
dditional works,
e.g. coal stockyard;
An increase in the
Owners Development Cost
(ODC) due to
delayed demobilization of workers
as a result of project delays;
and
Other increases are attributed to
Medupi
Leadership Initiative (MLI), escalations,
cost of cover and exchange rate adjustments.
2.1.6.
Project management initiatives
Eskom has created
different platforms to improve relations between all the stakeholders; this
includes the
Executive Consultative Forum (ECF
),
Contractor Consultative Forum (CCF), Contractor Management Forum (CMF),
CEOs meetings, and the Leadership Forum
(Eskom, Contractors and
Organized Labour). Eskom has convened all the relevant stakeholders and all
agreed to nullify the
Project
Labour Agreement (PLA)
, which was an agreement between Labour and Contractors, and
develop a Partnership Agreement (PA) which would include Eskom as well.
2.2.
Meeting with organised labour
The Committee interacted with representatives from the
following unions;
Numsa
, Solidarity and BCAWU, while
union representatives from Num,
Mewusa
,
Cepawu
and
Uwasa
were absent
without apology. Some of the concerns that were raised by organised labour
included the following:
Inconsistency on site: Although the
Partnership Agreement (PA) has been signed there is inconsistency in its
implementation. Only the minimum wage issue was resolved, the other issues
failed to be resolved by the stipulated deadlines;
Continuous bashing of
organised labour;
Composition of the
PLA (exclusion of Eskom);
Disregard of dispute
resolution procedures and labour legislation by contractors; and
Non implementation of
an agreement to pay local workers a commuting allowance of R2.50 per Kilometre
by 1 July 2013. Labour alleged that Eskom had instead instructed the
contractors to provide buses for local workers, instead of the R2.50 which
provoked workers to embark on the protest action on the 24 July 2013. The buses
that have been supplied by the contractors have led to intimidation from the
taxi industry and have posed a security threat to the workers.
2.3.
Meeting with the main contractors
The
Committee met with representatives of the following main contractors: Hitachi
Power Africa (Boiler manufacture), Murray and Roberts (Civil works),
Alstom
Africa (Turbine Island, ITC), Basil Read, Aveng, LPS
Consortium (Wiring), and
Actom
Divisional (Supply
cables). The discussion focused on the challenges facing the contractors,
reasons for the delays, strategies put in place to ensure the project was
completed on time. These were the outcomes of the interaction:
a)
Hitachi
Power Africa A sub-contractor of Hitachi
manufactured certain high-pressure
part equipment according to the incorrect welding procedures and fraudulently
falsified that the documentation had been certified. It further fraudulently
acquired TUV certification for the welding procedures. The matter has been
handed over to the law enforcement agencies. Hitachi and Eskom were working
together to replace the incorrect welding and validate the qualified welding
procedures.
b)
Alstom
-
Medupi
will be controlled by a Distributed Control System
which has undergone Factory Assistance Tests, and
Alstom
as the contractor has failed the Factory Assistance Tests 3 times.
Alstom
has also brought in additional experienced partners
to rectify the problem, and Eskom has assisted
Alstom
with a team of Engineers in France to ensure that the tests succeeded.
c)
Atcom
Divisional -
for them to be successful they need access
to information from the other contactors and physical access to certain areas
where the cables need to be laid.
Atcom
needs to
install approximately 40 kilometres of cables.
d)
Generally
all the contractors complained about the following issues:
violent and destructive protests by
employees, and the work stoppages that affect productivity and cause the delays
to the project;
Financial losses due to the delays and
mistakes that have been committed;
Poor relationship with organised labour;
and that
Hitachi and
Alstom
systems need to be completed before
Atcom
can
commence with the cabling.
3.
Observations
T
he Committee made the following observations:
3.1.
Eskom
The
Committee:
noted with concern the announcement that the
synchronisation of unit six has been delayed to June 2014, but was encouraged
that Eskom was still determined to successfully complete unit six by December
2013;
praised Eskom for having replaced the German
welders who were initially imported at the beginning of the project with the
welders that have been produced by Eskom;
acknowledged that Eskom had established
several structures to deal with challenges of all stakeholders, but was
concerned that despite the structures being in place, the work stoppage of the
24 July still occurred;
noted with concern that the company was
unable to monitor and inspect the work of contractors and verify the quality of
work in order to proactively intervene;
noted that the exclusion of Eskom from the
Project Labour Agreement as a partner had contributed to the poor employee
relations and the violent and destructive protests;
noted with concern that Eskom was lenient on
imposing penalties to underperforming contractors who delayed the project;
acknowledged and welcomed the initiative to
review the Project Labour Agreement into a Partnership agreement, but was
concerned with the inability to enforce compliance among stakeholders;
noted with concern the roll-on effect of the
delay for the synchronisation of unit six on the rest of the project; and
acknowledged
that
there was a security company contracted on site, but there was no capacity to
control and manage protest actions.
3.2.
Contractors
The
Committee noted with concern:
the unacceptable behaviour of the
sub-contractor who had fraudulently and without following the proper procedures
performed the Post Weld Heat Treatment, and was happy that the matter had been
reported to the law enforcement agencies;
the lack of adherence to labour legislation,
the inhumane treatment and lack of respect for organised labour by some
contractors;
that seven contractors on the project are on
a business rescue intervention;
the
inability
of the contractors to manage employee relations and avert protest actions.
3.3.
Organised
Labour
The
Committee noted with concern:
the unacceptable violent and destructive
protest actions that led to damage to property and severe injuries to fellow
employees;
that organised labour was not united,
generalised issues and made inflammatory statements that could induce further
violent protests;
that inconsistent communication and the lack
thereof from contractors to organised labour has created lack of trust among
partners and worsened relations; and
that
organised
labour felt undermined as Eskom and the Contractors failed to acknowledge and
respond to their demands in reasonable time.
4.
Recommendations
The Committee made the following recommendations
:
The Minister of Public
Enterprises should ensure that Eskom:
resolves the outstanding issues for the
completion of the Partnership Agreement (Site Specific Agreements) between
organised labour and contractors, in order to improve relations and governance
problems on site;
intensifies monitoring and inspection on the
quality of work and on time performance of all contractors;
ensures that there are harsher penalties for
under-performance and non-delivery of contractors;
improves
communication with the public as well as stakeholders.
When something happens at
Medupi
,
Eskom should be the first to inform the public and not the media, as that was
how information got distorted.
will address the report of the work stoppages
of 24 July 2013 and of any possible consequences thereafter for the
project;
and
initiate
action
against those workers who caused the damage to property and injury to people on
the 24 July 2013, and ensure that there are consequences for workers who caused
this.
The
Minister of Public Enterprises should ensure that contractors:
adhere to labour legislation and treat
workers with respect;
perform their duties with the highest level
of ethical and professional standards; and
deliver
on the
performance targets and are penalised severely for non performance.
The
Minister of Public Enterprises should ensure that organised labour:
does
not delay
this project any further and action be taken against those workers who have
caused damage to property and injury to people.
Report to be considered.
Documents
No related documents