Stakeholders hope Kuwait can execute spending plans

11 August 2023

This month’s special report on Kuwait also includes: 

> ENERGYKuwait's $300bn energy target is a big test
> BANKINGKuwaiti banks enter bounce-back mode
> INTERVIEWKuwait’s Gulf Centre United sets course for expansion


 

Contractors in Kuwait hope that the country’s recently appointed cabinet will be able to execute spending plans without descending into political infighting.

Earlier this month, Kuwait’s National Assembly passed the 2023/24 budget, projecting the largest year of spending in the country’s history.

The budget projects spending at KD26.2bn ($85.2bn) and revenues at KD19.4bn, with a projected deficit of KD6.8bn. After the vote, the Assembly closed for its summer break to return in late October.

Speaking to lawmakers after the budget was approved, Prime Minister Sheikh Ahmad al-Nawaf al-Sabah thanked them for their cooperation and called for more collaboration in the next term when they return.

Key projects 

Joint action by the country’s politicians will be vital in executing spending plans and pushing through strategic infrastructure projects.

In July, Kuwait’s government submitted a four-year programme for major infrastructure projects to the National Assembly. The programme included 107 projects to be completed through to 2027.

Among the projects are Kuwait’s section of the GCC Railway project and Kuwait International airport’s Terminal 2, which is expected to increase the capacity for flights in and out of the country from 240,000 to 650,000 by building three new runways.

Other key projects included in the programme are a scheme to repair thousands of kilometres of roads and the long-delayed Mubarak al-Kabeer port expansion.

The container harbour on Boubiyan Island faces Iraq and is anticipated to have a capacity of 8.1 million containers when completed.

If all the oil and gas projects in the programme are executed as planned, the country’s oil production capacity will increase from 2.7 million barrels a day (b/d) to 3.15 million b/d.

At the same time, natural gas production will be increased from 521 million cubic feet a day (cf/d) to 930 million cf/d.

Inadequate spending

The programme could have significant economic benefits for Kuwait. However, many contractors within the country remain pessimistic about the chances of the plans being fulfilled.

In May this year, official figures issued by government agencies revealed a worryingly low level of government spending on development projects despite large budgets being allocated.

During the 2022/23 fiscal year, only KD470m was spent despite KD1.3bn being allocated for projects.

The expenditure rate of only 36 per cent for the 2022/23 fiscal year has sparked concerns that the recently announced spending plans for the next four years are also likely to fail to hit targets.

Unpredictable policies

Kuwait’s low expenditure rate was mainly driven by political gridlock that has stopped the government from making key decisions and giving the essential approvals needed to execute projects.

Kuwait has had three elections in three years, creating policy uncertainty that has significantly impacted businesses and progress on policy issues.

Due to the political gridlock, major contract awards have been scarce in Kuwait over recent years and dozens of businesses have been forced to take drastic action.

With so few major new contract awards, some international contractors have reduced staff levels in Kuwait, and many domestic businesses have started seeking work overseas in Saudi Arabia, Oman and Qatar.

The government is very worried about potential electricity blackouts if one of the country’s power stations cannot operate for any reason

Power prioritised

While contract awards remain far below historic highs, a number of significant awards in the power and water sector in the first quarter of this year have increased optimism for some stakeholders.

The value of awarded projects in Kuwait for the first three months was KD527m ($1.7bn), more than four times as much as the same quarter the previous year.

This was mainly driven by activity in the power sector, which rose to its highest level in almost six years, according to the National Bank of Kuwait (NBK).

The jump in spending on the power sector came as the government tried to fend off possible electricity shortages.

One source said: “This was a form of emergency spending as the government is very worried about potential electricity blackouts if one of the country’s power stations cannot operate for any reason.”

A sector where major contract awards have remained very low is oil and gas, something that has worried analysts as Kuwait relies on this sector for more than 90 per cent of its revenues.

True test

In June, the prime minister named the country’s fifth cabinet in less than a year. The latest 15-person cabinet retained the prime minister and nine ministers from the previous cabinet in their old posts.

The new cabinet’s similarities with the last cabinet have fuelled concerns that it will be plagued by similar problems when it comes to pushing through spending plans.

However, the slight changes made have shifted the balance of the cabinet in a way that favours cooperation with the parliament, according to some contractors.

If cooperation can be fostered and we see a period where the government approves major projects, it could be transformational for the country.

Ultimately, the true test of whether Kuwait’s policymakers can work together to push through approvals for projects will come when they return to work after their summer break.

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Wil Crisp
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    When the first missiles and drones were fired at the GCC on 28 February, the region’s economic story pivoted abruptly, from long-term vision-building to near-term resilience.

    The conflict is now the Gulf’s most consequential economic stress test in a generation. It is challenging the safe haven premium that underpins capital inflows, while disrupting the physical networks that keep the region’s economies running, from energy exports and shipping lanes to airports and tourism.

    Over the past two decades, GCC governments have worked to pair diversification with an image of stability: open economies, predictable regulation and security that felt, to many investors, close to non-negotiable.

    This crisis has reopened an older question last asked during the 1990 to 1991 Gulf War: not simply how fast the Gulf can grow, but whether it can remain investable and operational under sustained security risk. The early evidence is mixed and still emerging.

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    The clearest and most quantifiable example of the economic toll came when Iranian strikes targeted Ras Laffan Industrial City in Qatar. The damage reported by QatarEnergy is significant. Liquefied natural gas (LNG)-producing trains 4 and 6, which account for about 17% of Qatar’s total LNG exports, need repairing. The expected revenue loss is $20bn a year.

    In a statement, QatarEnergy president and CEO Saad Sherida Al-Kaabi said the repairs will take three to five years to complete, underlining the long-term impact on the Qatari economy. JP Morgan estimates that Qatar’s GDP could contract by 9% this year.

    Qatar is not the only GCC state to have suffered damage to its energy infrastructure. Bahrain, Kuwait, Oman, Saudi Arabia and the UAE have all had energy assets targeted.

    In addition to damage caused by missiles or drones, logistics problems triggered by the closure of the Strait of Hormuz are having a material impact. Aluminium Bahrain (Alba) has implemented a controlled shutdown of reduction lines 1, 2 and 3, one example of how supply chain paralysis is spreading into industry.

    By idling 19% of its production capacity, approximately 308,000 tonnes a year, Alba is attempting to preserve raw material inventory and prioritise the operational stability of its newer, more efficient lines 4, 5 and 6. However, the macro implications for Manama are severe. Alba contributes 12% to Bahrain’s GDP, with the broader aluminium sector, a vital driver of the kingdom’s Economic Vision 2030, accounting for over 15%.

    The conflict is now the Gulf’s most consequential economic stress test in a generation

    Dubai disruption

    In Dubai, where the economy has made great strides in diversifying away from oil and gas and into sectors including tourism, aviation and real estate, the disruption caused by the war is also taking a toll. Despite a few high-profile attacks, the city’s infrastructure remains almost entirely intact. The problem is that its accessibility has been halved. As of late March, data shows flight capacity hovering at 50% across 70% of destinations. Hotels in the emirate are operating at single-digit occupancy levels.

    In response, Dubai has begun reviewing support packages for the sector, including fee relief and the removal of penalties for delayed payments. This stance mirrors Dubai’s response to the Covid-19 pandemic, a crisis the emirate ultimately navigated well. The plan is that an initial focus on resilient source markets, such as Russia and Africa, will allow the tourism sector to move onto the road to recovery.

    The Dubai property market is perhaps the most sensitive barometer of international confidence. For three weeks, the market has lived in a state of suspended animation. While AED11.9bn in real estate sales were recorded in early March, analysts warn of a significant time lag. These figures represent registrations of sales agreed weeks or months ago, and the true impact of the 28 February escalation may not be reflected in official data until late March or April.

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    Rather than cutting headline prices, which would damage long-term community values, some developers are offering registration waivers, 0.5% monthly payment plans and extended grace periods.

    More than 15,000 flights were cancelled at seven major regional airports in the first week of March

    Aviation strain

    With airports in Bahrain, Riyadh, Kuwait, Dubai and Abu Dhabi all targeted during the conflict, the Middle East’s aviation sector is grappling with unprecedented operational friction. According to Fitch Ratings, more than 15,000 flights were cancelled at seven major regional airports in the first week of March alone.

    The main international hubs, Dubai, Abu Dhabi and Doha, are facing a sharp spike in operating costs. Rerouting around restricted airspace requires longer flight paths, additional technical stops and increased expenses for crew overtime. While carriers have buffers through fuel hedging, ranging from 50% to 80%, the sheer volume of refunds, vouchers, and accommodation for 1.5 million displaced passengers is weighing on balance sheets.

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    If the conflict remains short-lived, the impact on annual profitability may be temporary. But a prolonged period of airspace instability would test the flexibility of the region’s transport infrastructure at a time when aviation is meant to be a central pillar of growth.

    Banking support

    Underpinning all sectors is the banking system, and the response from regional regulators has been swift. The Central Bank of the UAE (CBUAE) has approved a Financial Institution Resilience Package that aims to both reassure and protect the economy.

    The UAE’s banking sector entered the conflict from a position of strength, with foreign exchange reserves exceeding AED1tn ($272bn) and a capital adequacy ratio of 17%. By allowing banks to tap reserve balances up to 30%, and providing term liquidity facilities in both dirhams and dollars, the CBUAE is signalling that the system remains liquid, capitalised, and ready to support corporate and individual borrowers through temporary classification flexibility.

    The outlook across the GCC is not uniform. S&P Global Ratings has flagged Bahrain and Qatar as more exposed to potential capital outflows. In a severe stress scenario, the region could see domestic deposit outflows of up to $307bn. Bahrain’s retail banks are under scrutiny due to recent growth in external debt and thinner funding buffers.

    The risk of non-performing loans also looms. S&P suggests that, in a high-stress scenario, total losses across the GCC’s 45 largest banks could reach $37bn, with the logistics, tourism and real estate sectors bearing the brunt. The banking sector is the ultimate backstop. While it is well-placed to navigate the conflict, much will depend on how long the economic impact lasts.

    Brand challenge

    For decades, the GCC has positioned itself as a place where capital is safe, taxes are low and the lifestyle is aspirational. The conflict that began on 28 February has undermined that perception of safety. Restoring it will be the key challenge for the coming years.

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    That possibility will be a hurdle for investment decisions to overcome. The test for the region’s leaders is no longer only about building the world’s tallest buildings or largest smelters. It is about proving they can protect them. 

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    Progress on Iraq’s project to develop the strategically important Akkas gas field has been disrupted by security issues related to the US and Israel’s ongoing war with Iran, according to industry sources.

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    He added: “We will work to uncover and expose the suspicions in this contract during the next stage, especially since this contract was made by some representatives for specific interests, which we will reveal soon with evidence.”

    Plans to sign the contract to develop the Akkas gas field with a Ukrainian company were first announced by the Oil Ministry in September 2023, but Ukrzemresurs was not named at the time.

    Iraq’s government is trying to transform the country into a gas-exporting nation. Currently, Iraq is reliant on Iran for gas imports.

    Both Saudi Arabia and the US, which are looking to contain Iranian influence in the region, have been supporting Iraq in developing its non-associated gas fields as this will reduce Iraq’s economic reliance on Iran.

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    Wil Crisp