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Industry Responds to Government Decision

7 December 1995
The Hon Paul Keating MP
Prime Minister
Suite MG8
Parliament House
CANBERRA ACT 2600

Dear Prime Minister

Industry Response to the Government's Forestry Decisions

This letter responds on behalf of the members of NAFI to the decisions on the forest industry announced by your Ministers on Friday 1 December.

NAFI welcomes the positive and constructive statements in the Wood and Paper Industry Strategy. The industry is pleased at the support shown for plantations, for farm forestry and for boosting research and development. We are particularly pleased to note the Government's commitment to the removal of export controls over plantation-grown wood, subject to satisfactory codes of practice being implemented by the States.

You would be aware no doubt that the rate of new plantation establishment in Australia has fallen to low levels in recent years It is at the point at which it is doubtful whether softwood plantation establishment is sufficient to offset current annual harvest and therefore it is doubtful whether current levels of plantation activity are sufficient to maintain the existing areas of this essential source of wood fibre. Much needs to be done to re-establish confidence in this sector and we see the Strategy document as a welcome move in this direction.

NAFI has since its inception consistently supported the National Forest Policy Statement (NFPS) and was consulted as drafts of the interim Deferred Forest Areas (DFAs) were developed. Industry has worked with both State and Federal Governments to achieve a balanced outcome in regard to forest policy. In particular, we support the introduction of a world class national forest reserve system on the basis that there will be equitable compensation for individuals, firms and communities who may be adversely affected.

You will appreciate therefore that the travesty your Government has committed in ignoring this process in its first definitive decision on forestry - that is, the current round of woodchip export licence decisions - is causing dismay, first amongst our members who are export pulpwood producers and secondly amongst other members and the public as the implications become more generally understood.

The outcome of the woodchip export licence applications has compromised the NFPS and could destroy the process of DFA and Scoping Agreements and RFA even before it is fully underway. Therefore, NAFI is seeking the establishment of an industry - government taskforce to review the woodchip licence decisions and to restore the rational processes laid down in the NFPS.

There was a great chance in granting this year's export licences to grasp a win/win opportunity, to take account of DFA's, especially in regard to the majority about which conditional consensus exists. For the Government to have ignored these and directed volume restrictions and licence conditions on the basis of no rigorous principles which can be identified is much to be regretted; more than that, it is to be condemned.

And, it is indeed condemned by those of our members who are export pulpwood producers. Those members who are established pulpwood producers believe that blatant discrimination has occurred. Reductions in volumes have been applied to producers with proven records of performance, with installed plant and equipment and in respect of whose requirements infrastructure has been laid down. Amazingly, the Government has targeted firms which have demonstrated a major commitment to tree growing and plantation establishment In addition, the Government has targeted firms with the best value added associations.

The volume restrictions and other conditions applied to the Export Licences defy even basic common sense for the following reasons;


  • They are not based on conservation science.As your Ministers have stated publicly, the DFAs based on the Commonwealth criteria and the 'precautionary principle' provide adequate protection of the conservation value of Australia's forests. Additional restrictions on harvesting and sale of timber products we entirely unnecessary.

    The situation in the Wombat Forest is particularly ludicrous. Trees will be cut as planned to meet sawlog production commitments. The sale of logging residues is perfectly legal and encouraged on the domestic market but banned if they are to be exported The export ban will not "save" one tree. The ban will force the burning of thousands of tons of readily saleable material without achieving any environmental benefit: actually environmental detriment - a totally counter productive move.

  • They are not based on forestry science.
    Sound forest management requires the removal of pulpwood at several stages in the life cycle of a production forest. Thinnings need to be removed in order to promote maximum sawlog production. Pulpiogs and logging residues require removal at the final harvesting stage in order to promote it'll regeneration, Your decision will actively discourage both thinning and the removal of residues, leading to poor forest management, reduced wood production, the requirement for increased burning of residues and greatly increased probability of wild bush fires.

  • They are not based on economics.Australia will lose the opportunity to export approximately 4 million tonnes of chips valued at about $300m in 1996. This means a loss of rural jobs, a loss of trade revenue, increased rural unemployment and a loss of income to rural communities.

  • They are not based on an analysis of social impact. Earlier this year, at the time of the Forest Industry Rally at Parliament House, the communities were given an undertaking that any job loss or disruption connected with the DFAs would be kept to an absolute minimum. Longer-term adjustment issues would be dealt with in the context of the Regional Forest Agreement process with full socio economic studies to be carried out.

    The decision on Friday is in direct breach of that undertaking - it involves significant gratuitous and unnecessary loss of jobs.

  • They are not based upon maintaining confidence. In fact, they have undermined confidence of contractors, employees and owners of the companies. They have had a major impact on the suppliers and overseas customers. They have, in a stroke, rendered obsolete a wide range of recently completed investments in value adding.
    Reduced confidence is highlighting the sovereign risk which Australian resource industries increasingly face.


There are other negative aspects of the conditions of the new licences:

  • they affect private land such that one licensee is required to curtail its programme of private forestry plantation, a plantation which is one of the largest and most scientifically based in Australia.

  • they direct distant low quality pulpwood to producers in priority to close-in high quality material, thus being "value-subtracting" in effect, in contradiction to avowed Government intention.

  • two licensees have been directed at the expense of their own raw material source to process another licensee's production, a government intervention of breathtaking departure from established practice. Concern exists to have one Licence holder responsible for another's compliance with Licence conditions.

  • the redirection of source material will drive pulp yields below levels committed to in contract with tendencies towards;
    -breach of contract

    -loss of ground in price negotiations

  • the priorities of fibre sources have been distorted such that, in some areas, a halt to silvicultural work has resulted, thus reducing, once and for all, the sustained yield capability of established forestry areas.

  • they will impact on costs of sawlog material which will feed higher costs and prices into the true wood sector of the industry, through that into building and furniture, ultimately to the consumer price index.

  • they will significantly reduce royalty earnings and increase the costs of the State Forest Services.

  • they will throw many operators and companies with borrowings or leases etc, into breach of financial commitments which will compromise the industry's ability in future to finance new developments.

  • they are negative to conventions to which the Australian Government is signatory, e.g. Convention on Climate Change.



The Government in these "woodchip decisions" has defied the advice of the Industry Commission which recommended against using Export Licences as a device to intrude Commonwealth influence in land use decision making. And, I have to say again that it has defied its own, as yet untried, process of deciding land use through the DFA/RFA process.
You should be aware that the rescheduling of logging under the DFAs (and in NSW under the State Government's policies) will generate much more pulpwood than in the past. This material should be used to grant special development quotas to new entrants instead of using new entrants to penalise well established existing licensees. The Government's policies need to be adjusted to accommodate the fact of burgeoning wood supplies. The attempt to move against using them will force the burning of hundreds of thousands of tonnes of exportable material. This will make the Government look ridiculous.

The compensation and adjustment assistance packages have not been developed in consultation with industry They have yet to be properly specified and do not reflect in either financial magnitude or structure the real and equitable requirements of the individuals, communities and firms involved in the forest industry.

You should be aware that no successful implementation has occurred arising from the compensation and adjustment package which you offered to industry in February. Need there is by people in plenty; it is just that the Government's performance against your promise has turned out to be a hollow, empty non-event.

The woodchip decisions announced on Friday make a mockery of the Government's policies with respect to employment, competition, micro economic reform and trade. Rural jobs are destroyed without any justification. Inefficiency, higher costs and non competitive arrangements are deliberately imposed on industry. The package introduces trade restrictions and moves away from achieving an internationally competitive industry.

The RFA process must be implemented in a scientific and non political manner if it is to provide the basis for the development of Australia's forest industries in order that these industries play their part in the welfare of Australians as producers and consumers.

I ask that you immediately establish a taskforce of industry and government to put the woodchip export licensing process back on the rails, to review the decisions of Friday, to let restored licences be a symbol to renew confidence for industry investment - and to provide breathing space to allow the RFA process to take hold.

Yours sincerely

T.H. Gunnersen President


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