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### Viewing cable 05QUITO2861, A TALE OF TWO TELECOMS: ANDINATEL AND STEP-CHILD

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Reference ID | Created | Released | Classification | Origin
--- | --- | --- | --- | ---
05QUITO2861 | 2005-12-15 21:37 | 2011-05-02 00:00 | UNCLASSIFIED | Embassy Quito

`

    This record is a partial extract of the original cable. The full text of the original cable is not available.

` `

    UNCLAS SECTION 01 OF 04 QUITO 002861

    SIPDIS

    E.O. 12958: N/A
    TAGS: ECPS ECON EIND EINV EC XR
    SUBJECT: A TALE OF TWO TELECOMS: ANDINATEL AND STEP-CHILD
    PACIFICTEL

    SENSITIVE

    ¶1. (SBU) Summary.  Established when the GOE broke up former
    state telecom Emetel in 1997, Pacifictel and Andinatel have
    taken divergent paths since their formation.  While
    Andinatel has transformed itself into a profitable
    enterprise with a new corporate culture, an overstaffed and
    undeveloped Pacifictel has endured a scandal-filled life.
    Repeated efforts to privatize the management of the two
    telecoms have failed due to accusations of corruption and
    political intrigue surrounding Pacifictel.  Pacifictel's
    ruinous path reflects the negative impact that entrenched
    political interests and corruption have on the Ecuadorian
    economy.  Recent events at Andinatel suggest that political
    forces are now intent on looting it the way they have looted
    Pacifictel.  End Summary.

    THE BIRTH OF TWO TELECOMS
    -------------------------

    ¶2. (U) As the first step in an aborted attempt at
    privatization, in 1997 regulators broke up state-owned
    telecom company EMETEL into two companies, Andinatel and
    Pacifictel.  Andinatel received the exclusive right to
    service 12 provinces in northern and central Ecuador while
    Pacifictel became responsible for service to the other 10
    predominantly coastal provinces.  Regulators also granted
    both companies the exclusive right to provide long distance
    services for their regions.  Although they technically
    became private companies in 1997, the GOE, through state
    holding company Fondo de Solidaridad (FS), still owns 100%
    of Andinatel and Pacifictel.  Andinatel and Pacifictel
    expanded beyond their fixed-line operations in March 2003
    when they jointly started mobile operator Telecsa.  Telecsa
    competes with Spanish-owned Movistar and Mexican-owned Porta
    for cellular service within Ecuador.

    TWO DISTINCT PATHS
    ------------------

    ¶3. (SBU) While Andinatel has evolved into a profitable,
    reasonably well-run state-owned enterprise (SOE) over the
    past 8 years, Pacifictel has been repeatedly looted by the
    various coastal political parties, being driven to the point
    of bankruptcy and operating with out-dated hardware and
    ineffective personnel.  In comparison to Andinatel's growing
    profits (from $41 million in 2001 to $68 million in 2004),
    Pacifictel has generally posted losses ($52 million in 2002
    and $7 million 2004).  Further undermining faith in its
    profitability, Pacifictel consistently makes unexplained
    (downward) revisions of its losses, sometimes more than 6
    months after the fact.  While the walls of the Andinatel
    President's office are adorned with awards and his company
    accounts for 93% of the (generally lackluster) earnings of
    the SOEs in the FS portfolio, reports of Pacifictel's
    imminent bankruptcy appear annually.  (The FS also holds the
    shares of some 25 electrical companies in the country.)

    ¶4. (U) The contrast between the services provided by the two
    fixed-line telecoms is striking.  With respect to new
    telephone lines, Andinatel has installed 600,000 new lines
    over the past 6 years while Pacifictel has installed less
    than a third of that number.  Meanwhile, a plan by Andinatel
    and Pacifictel to lay fiber optic wire and link the two
    companies' fiber networks remains unrealized because of
    Pacifictel's incompetence.  As Andinatel was completing its
    network in mid-2004, Pacifictel was nullifying the contract
    it had entered into to expand its fiber network, leaving
    2,000 miles of fiber cable unused and in warehouses. In
    addition, Andinatel and Pacifictel's cellular venture is no
    longer "joint."  Pacifictel's inability to provide agreed-
    upon investments led it in February 2005 to sell off its
    share of Telecsa, which is now owned entirely by Andinatel.

    ¶5. (U) End users' ratings of the two telecom's services are
    consistent with this comparison.  A June 2005 customer
    satisfaction survey of mobile and fixed-line operators in
    the country ranked Andinatel first with 55% of clients
    describing its services as good or excellent. Pacifictel
    came in second to last in the survey, with just one third of
    its customers rating its services as good.  Indeed, reports
    by regulators in 2002 and 2004 indicated that some 30% of
    Pacifictel's lines were not operating in any given month.
    Pacifictel's poor service and inability to modernize and
    expand operations have led FS to try auctioning off the
    management of the company to outside investors.  Thus far,
    none of these annual auctions have succeeded.
    ¶6. (U) Recent activity suggests Pacifictel's downward
    trajectory will continue.  Pacifictel's 2004 numbers are not
    encouraging.  Since 2000, the company's fixed assets have
    deteriorated by $61 million and total equity value has
    fallen by $99 million.  Revenues in 2004 were actually down
    3% compared to 2003 figures.  Finally, Pacifictel's debt is
    now 81% of equity, compared to 47% in 2000.

    PACIFICTEL: OVERSTAFFED, UNDERDEVELOPED, AND CORRUPT
    --------------------------------------------- -------

    ¶7. (U) Pacifictel's mess is tied to corrupt personnel and
    infrastructure development policies.  Pacifictel's contracts
    for expanding and modernizing operations consistently are
    disadvantageous to the company and fail in their aim to
    attract needed investment.  Such contracts have revealed
    scandals in the procurement of security and billing
    services, the purchase of equipment and software, and the
    purchase of insurance policies.

    ¶8. (U) One of Pacifictel's biggest problems is the quantity
    and quality of its employees.  To begin with, Pacifictel has
    approximately 3,500 employees. (Andinatel has slightly more
    than 2,000.)  Wages represented more than 60% of the
    company's operating costs in 2004.  It is outlaying 240%
    more in wages than it was in 2000.  Of the 3,500 employees,
    some 2,000 of them provide security and only 100 are
    technicians.  The rest are lawyers or work in administrative
    capacities.

    ¶9. (SBU) Superintendent Ivan Burbano of the Superintendencia
    de Telecomunicaciones (Suptel), the government entity that
    is charged with enforcing telecom regulations, claims that
    bloated and inappropriate staffing is due to corrupt
    contracting practices.  That is, Pacifictel managers receive
    kickbacks for signing unnecessary and overpriced contracts
    with employment agencies such as those providing security
    services.  Lacking a properly developed staff of engineers,
    managers also are able to contract out for technical
    services to repair broken lines, often under similarly
    suspicious circumstances.

    ¶10. (U) Corrupt contracting decisions are not restricted to
    personnel matters.  Contracts for infrastructure development
    also have come under suspicion.  In 2004 alone, Pacifictel
    had to cancel contracts with three suppliers in response to
    public allegations of corruption.  One of these contracts
    was to provide $100 million to install equipment and phone
    lines.  Other allegations of wrongdoing led to the
    investigation of a contract awarded to China's ZTE
    Corporation to install fiber-optic cable.  In the face of
    public scrutiny, Pacifictel was forced to demand the
    nullification of the ZTE contract after it was revealed that
    ZTE had illegally sub-contracted the installation of the
    cable and that this installation never took place.  In the
    end, Pacifictel paid $3 million for fiber optic cable that
    never made it out of Customs.

    ¶11. (U) A good example of Pacifictel's suspicious
    contracting practices is a contract it signed with
    Transferdatos, an Ecuadorian company that provides video,
    voice, and data services.  Under the contract, Transferdatos
    was to install communications equipment and provide data
    transfer and other services.  However, the contract was
    deficient in several respects.  To begin with, the equipment
    sold would be obsolete by the time it was paid for, in
    December 2005.  More importantly, under the contract's
    clauses, Transferdatos was allowed to recoup all of its
    operating costs while Pacifictel assumed almost all of the
    obligations.  For instance, Pacifictel was responsible for
    the transmission platform that Transferdatos would use, the
    management of interconnections with other operators, the
    provision of collection services on behalf of Transferdatos,
    the rent of office space for Transferdatos, the gas used in
    Transferdatos' vehicles, etc.  These clauses essentially
    required Pacifictel to cover the costs of the services that
    Tranferdatos was being paid to provide.  A rather nice
    arrangement for Transferdatos, made possible, most likely,
    by kickbacks to the Pacifictel managers who agreed to the
    contract.

    ¶12. (U) Illegal bypass connections established in
    Pacifictel's offices are yet another example of corruption
    in the sector.  Bypass operations capture incoming
    international long-distance traffic and redirect it as local
    calls.  This practice has plagued both Andinatel and
    Pacifictel.  Andinatel and Pacifictel should be collecting
    interconnection charges for these international calls, but
    they do not, losing out on revenues.  Suptel discovered 16
    such bypass operations in 2003 and even more in 2004.  More
    recently, a crackdown by Suptel in February 2005 discovered
    a bypass operation consisting of some 48 lines that would
    provide access to over 20,000 lines in Pacifictel's
    switching center.

    ¶13. (U) Corrupt contracting obviously takes it toll.  A
    November 2004 assessment claims that corruption has directly
    cost Pacifictel at least $100 million since its inception.
    In addition, lawsuits totaling $157 million have been
    brought against Pacifictel and remain unresolved.  Many of
    these lawsuits originate with foreign long distance carriers
    claiming that Pacifictel is withholding outstanding
    interconnection fees regarding the termination of
    international telephone calls.

    INVESTMENT AND PRIVATIZATION UNDERMINED
    ---------------------------------------

    ¶14. (U) Pacifictel's poor record has forced the FS to seek
    outside investment and administration to guide the telecom
    and avoid the influence of local politics.  In this effort,
    FS has been conducting, starting in 2000, public auctions to
    award management contracts.  While the auctions try to
    address management concerns at Pacifictel, they also are
    part of an overall effort to privatize the telecom industry
    in the country.

    ¶15. (SBU) All four of the public auctions to date have
    failed to secure foreign capital and private-sector
    management.  This failure is generally tied to foreign
    investors' concern about the corruption within and political
    influence over Pacifictel.  A good example was the 2002
    effort to award an 8-year management contract.  FS declared
    an end to that offering in May of that year after the lone
    applicant Swedtel pulled out.  Swedtel, a Scandanavian
    telecom and subsidiary of Telia, declined to make the
    required guarantee payment because of uncertainty
    surrounding an outstanding lawsuit against Pacifictel by the
    Ecuadorian company Telefcom.  The lawsuit by Telefcom, a
    shell company created during the auction and with a net
    value of only $800, was part of a strategy to disrupt the
    auction.  That strategy also included a $50,000 advertising
    campaign, paid for by Telefcom, to stir up public opinion
    against the process.  According to Alejandro Rivadaneira,
    the FS president at the time, powerful political and
    economic interests created Telefcom to undermine the
    privatization process.  These interests included both
    politicians who were accustomed to receiving campaign
    funding from Pacifictel as well as Pacifictel's suppliers
    that wanted to maintain their advantageous contracts with
    the company.  The unfounded lawsuit by Telefcom was left
    standing until Swedtel withdrew its bid.  The following day,
    the judge made a swift decision to throw out the suit.

    ¶16. (U) Further attempts to seek outside investment and
    management for Pacifictel and Andinatel have failed due to
    similar uncertainty.  In 2003, seven bidders entered into
    discussions with FS, but by the end of the year all had
    pulled out for unspecified technical reasons.  In 2004,
    Eurocom consortium, which is controlled Norway's Telecom
    Management Partners, attempted to conduct a $120 million
    investment in Pacifictel, Andinatel, and Telecsa.  That
    process was cancelled when it was determined that Eurocom
    did not meet the requirements laid out in the bidding rules.

    ¶17. (U) FS's current attempt to find an administrator for
    its telecoms is scheduled to be completed in the last week
    of December 2005.  Attempting to avoid past failures and to
    ensure transparency, the FS has called on the International
    Telecommunication Union (ITU), to run the process.  The
    final stages are to take place in Geneva.

    MANAGEMENT AND GOE INSTITUTIONS UNHELPFUL
    -----------------------------------------

    ¶18. (U) Instability in Pacifictel's board is commonplace.
    Pacifictel has had ten presidents in the last five years.
    In July 2005, the Pacifictel Chairman resigned after only 47
    days in office.  Last month, the entire Pacifictel Board
    (along with that of Andinatel) was changed.  Some suggest
    that the rapid leadership turnover precludes any real
    management of the company, allowing corrupt lower-level
    managers to take advantage of the constant change at the
    top.  However, the reality is that changes in management are
    the result of constant political infighting over who
    receives the kickbacks.

    ¶19. (U) This infighting played out on a larger scale when
    the administration of President Gutierrez attempted to wrest
    control of Pacifictel from the coastal parties and in
    particular the Social Christian Party (PSC).  Gutierrez's
    efforts, which came to a head in March and April 2004,
    included replacing top-level managers at Pacifictel with
    close associates and family members, to include his cousin
    Renan Borbua, who also was a congressman.  Challenging the
    interests of the PSC triggered a response from Leon Febres
    Cordero, the leader of the PSC and former President of
    Ecuador (1984-88), who publicly and successfully attacked
    Gutierrez and his "circle of intimates" involved in
    Pacifictel.  (This attempt by Gutierrez mirrors the common
    Ecuadorian practice of "sharing the wealth" with associates.
    Indeed, a reported 20 military officers involved in a 2000
    military coup led by Gutierrez received bureaucratic posts
    in his administration.)

    ¶20. (U) Meanwhile, government institutions are strategically
    positioned to block change at Pacifictel.  Structural
    changes within Pacifictel, for example, require the support
    of the Telecommunications Council.  The Council includes
    among its six members, representatives from the military,
    the Vice-President's office, the Secretariat of Production,
    and the worker's union.  Thus, the economic interests that
    these groups have to maintain current corrupt practices at
    Pacifictel could undermine efforts to privatize the
    management of the telecom because of their influence on the
    Council.  As we saw with the Telefcom suit, the judicial
    sector also can facilitate corrupt activities.

    COMMENT
    -------

    ¶21. (SBU) In Ecuador, the corrupt business practices found
    in Pacifictel are not uncommon.  There are ample
    opportunities for rent-seekers at all levels to take
    advantage of the considerable and duplicative bureaucracy.
    These would include employees and management within
    companies, unions, GOE regulators, "oversight" entities such
    as the FS, and the variety of politicians who benefit from
    the slush funds created by kickbacks.  In many cases,
    embedded interests run across these actors, making the web
    of corruption strong and lasting.

    JEWELL

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