Talk of a new “national champion” in the telecommunications sector is ripe in Russia at present. Last month (July 10), the Russia’s government and Joint Stock Financial Corporation, Sistema, agreed on the acquisition of Sistema’s stake in Russian state-owned telecommunications holding company, Svyazinvest. Sistema is currently the only private sector shareholder in the state-controlled telecoms holding, with a stake of 25%. In June, Russian Communications Minister, Igor Shchyogolev, announced that Svyazinvest is seeking a merger with one of the top three mobile operators in Russia, a move seen as an optimal path for the state telecoms holding to expand into the country’s lucrative mobile (telecoms) business. Russia’s so called “big troika” of mobile operators – MTS, Vimpelcom and MegaFon – currently each have a market share of around 30 percent.
The trends in market consolidation in favour of the state follow the recommendation of a government commission at the end of May to reorganise the core assets of the Svyazinvest holding, predominantly by merging them into a single company. The reorganisation concept envisages a number of approaches to restructure the state’s telecoms assets, the most attractive of which appears to be the merger of Rostelecom (the national domestic long-distance and international operator) and Svyazinvest’s seven large inter-regional telecoms operators. The merger process, which is expected to last up to 3 years and is being advised by a range of international consultants, would result in either a new state holding based on Rostelecom, or a single company – the so called national champion. Negotiations on the reorganisation process were commencing with the minority shareholders in Svyazinvest’s units and creditors at the time of writing, although it will not be until the autumn that the Svyazinvest Board of Directors is expected to approve a restructuring strategy. The current proposition of establishing a national champion in the Russian telecoms sector has effectively ended speculation over the privatisation of Svyazinvest in the short term or the straight divestiture of some of its assets.
Security and communications go hand in hand
The Russian government commission’s approval of the Svyazinvest reorganisation last May coincided with the appointment of Russia’s former-Minister of Communications and Information Technologies, and current adviser to the President of the Russian Federation, Leonid D. Raimen, to the position of Chairman of the Board of Svyazinvest.
Raimen has been a key figure in the Russian telecommunications industry since the mid-1990s, but has been particularly influential during the era of the Putin presidency. He is deemed to be a close associate of Putin’s from the St.Petersburg days in the 1990s (Putin’s wife, Ludmilla, worked in a telecoms company headed by Raimen) and has been one of the few senior government officials whom Putin has personally requested to remain in his cabinet after periodical government re-shuffles.
Reiman is widely believed to have a personal stake in the mobile operator MegaFon (through Telekominvest, a St.Petersburg based telecoms holding structure Reiman established in the mid-1990s), which has received preferential licensing treatment from the Russian regulators while Reiman was communications minister. It also appears that MegaFon, with Reimain’s influence in the background, has close connections with the Russian security services since the company has won tenders organised by the Federal Government Communications and Information Agency (FAPSI) to operate a closed cellular communications network used by government security and law enforcement structures. In hindsight, this is hardly surprising. Reiman was first propelled onto the federal level in July 1999, by Sergei Stepashin, the Russian Prime Minister at the time, who appointed him as First Deputy-Chairman of the Russian State Committee for Telecommunications (Gostelekom).
In 1991-92, Stepashin was chief of the Federal Security Agency (later renamed Federal Security Service, or FSB) of the St. Petersburg and Leningrad Region Directorate, while Reiman was deputy head of the Leningrad City Telephone Network (LGTS) for Development. Communications and state security have always been closely interrelated government agencies in the former-Soviet Union: the latter invariably needed the services of the former, while the former could never take a step without a nod from the latter. In August 1999, when Boris Yeltsin appointed Vladimir Putin to become Russian prime minister, Putin appointed Reiman Gostelekom chairman. The following summer, with Reiman as the communications minister, one of his first acts was to sign off on Decree 130, which allowed FSB and other Russian security personnel to tap into the private phone conversations of practically any Russian citizen.
Foreign investor squeeze out from leading Russian mobile operator
Leonid Reiman as a key trusted face of the Russian government overseeing the reorganisation of Svyazinvest will ensure not only that the state’s interests will be adequately represented in the process of telecoms assets restructuring, but also that Putin’s rising class of power-bureaucrats or siloviki (as described in KCS’ last report on Russia) will have a dominant role (stake) in any potential re-distribution of property taking place as a result of the restructuring process. When the Russian communications ministry announced its intention of merging Svyazinvest with one of the country’s top mobile telecoms operators in June, noting Reiman’s recent appointment to the Chairmanship of the Svyazinvest Board and links to MegaFon, most market analysts foresaw a Svyazinvest-MegaFon partnership emerging.
Last month, however, Reiman appeared to surprise the markets, when he reportedly signed off on a government memorandum proposing to unite Svyazinvest’s mobile telecoms assets with Vimpelcom, another of Russia’s mobile troika. Under this proposal, Svyazinvest will acquire (buy out) the entire ownership stake held in Vimpelcom by Telenor, the Norwegian telecoms operator, which has long been an active investor in the Russian and ex-Soviet telecommunications market. Telenor is presently engaged in a high profile shareholder struggle and enduring legal battle with Vimpelcom’s other main shareholder, Altimo, the telecommunications subsidiary of the Alfa Group, which is controlled by the Kremlin-connected Oligarch, Mikhail Friedman.
The Norwegian company is currently struggling to maintain its stake in Vimpelcom, after Russian courts fined Telenor $1.7 billion originating from an allegation by Farimex, a tiny Vimpelcom shareholder, which claimed that Telenor held back Vimpelcom’s expansion into the Ukrainian mobile telecoms market. Telenor’s main stake in Vimpelcom has been suspended and is currently held by Russian bailiffs. The company has continued to appeal against the fine (as well as appeal for a delay in enforcement of the fine) and a final hearing on the case is expected to take place at the end of September this year. The Norwegian group fears, however, that its Vimpelcom stake may be sold before the final decision is announced. Telenor holds a combined stake of 29.9% in Vimpelcom, which had a market capitalisation of $42.3 billion in 2008, according to the company’s investor relations department.
Opportunistic Vs strategic state behaviour
Reiman’s latest proposal to merge Vimpelcom with Svyazinvest’s mobile telecoms assets, could pave the way not only for the Russian state to sequestrate Telenor’s assets and thereby cast further shadows over Russia’s already challenging business climate for the foreign investor, but also to take control of one of Russia’s mobile telecoms troika. While market analysts suggest that such a deal should by no means be seen as a foregone conclusion, it does imply that the power brokers behind the Russian state are once again behaving in an opportunistic manner (ie, engaging in further asset grabbing in a similar manner to some of the state takeovers of investor assets in the energy sector in recent years), rather than a strategic manner (ie, restructuring state assets in order to create a dynamic new player in the telecommunications market, stimulate competition and improve service provision to consumers).
Stuart Poole-Robb