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Chapter four - Impediments to Achievement of the 2020 Vision - Environmental Issues and Social and Community Issues
Introduction
4.1
In the previous Chapter, the Committee discussed the views
put to it on two categories of 'impediment'; namely, a) impediments inherent in
the Principal 2020 'Vision Goals'; and, b) commercial, economic and/or
regulatory impediments to Strategic Elements 1, 2 and 3.
4.2
In this Chapter, the Committee considers possible
impediments to Strategic Element 4 of the revised 2020 Vision. That Strategic
Element - Social and Environmental Factors - seeks to address issues arising
from the range of environmental issues resulting from plantation forestry. The Strategic
Element states that:
The growth of Australia's
plantation resources and timber processing industries is linked to strong
community support and low environmental impacts of the industry. Rural
communities are concerned about the impacts of changing land-use, and better
interaction is required to build community support for the plantation sector. Where
there is concern in the broader community about the sustainability of land-use,
plantation forestry can be developed as a partial solution to region-specific environmental
initiatives while acting as a catalyst for regional development. Furthermore,
commercial tree crops can provide a long-term solution to a range of land
management issues in the Australian landscape, including climate change and
salinity.[138]
4.3
Three actions designed to improve rural community
awareness of plantation issues and manage environmental services are outlined
under this strategic element. These are:
Action 13 Improve
stakeholder engagement in plantation industry expansion and inform communities
about the strategic role of plantations in wood and fibre supply and environmental
service delivery.
Action 14 Review
and promote opportunities for environmental services to enhance plantation
forestry.
Action 15 Promote
the natural resource management benefits of commercially planted trees.[139]
4.4
During the inquiry, the Committee received a significant
level of comment on both environmental and social issues and community views on
plantation forestry development. These issues and the question of whether alterations
are required to the Strategic Element are considered in this Chapter.
Environmental Issues
4.5
The submission made to the inquiry by Environment
Australia (EA) provided the principal comment on how and why environmental issues
present possible impediments to achievement of the 2020 Vision goals. The Committee also received comment from industry,
state government and others as to how, and to what degree, environmental
factors and environment protection issues act as an impediment to the 2020 Vision.
The Environment Australia
(EA) View
4.6
In its submission, EA dealt with the issues it raised under
the following headings:
-
Alteration of surface and ground water
availability;
-
Clearance of native vegetation for plantation
establishment[140]
Alteration of Water Availability
4.7
EA's central comment, on how the alteration of water
availability might constitute a possible impediment to achievement of the 2020 Vision goals, was that:
Environment Australia
notes that long rotation plantations can, depending on location and management,
help to significantly improve water quality. At the same time, water
availability could be a potential impediment to achieving the Plantations 2020
Vision where there is competition for the resource from downstream users,
including the environment.
...
In many situations, groundwater and surface water are
interconnected systems. Where groundwater discharges into streams,
afforestation will affect base-flow volumes as well as seasonal flow volumes of
the interconnected surface water system, due to the reduced availability of the
groundwater resource. The impacts of plantations on water resources will vary
according to ecosystems and depend on a
number of factors. These will include the physical location of the
plantations, the plantation size, density of the planting and species in relation
to available water resources, the regional climate and plantation management
and rotation length.[141]
4.8
The impact on the local environment of plantation
forests and the possible alteration of water availability is further explored in
Chapter Five in the context of water-related issues. The Committee also considers
the recently published paper by the Forest and Wood
Products Research and Development Corporation (FWPRDC), Water Use by Australian Forest Plantations.[142]
Clearance of Native Vegetation for Plantation
Establishment
4.9
EA's submission also canvassed the clearance of native
vegetation. The two principal concerns (shared by other submissions) are:
broad-scale clearing, and, as a corollary, the need to provide biodiversity
outcomes when designing plantations to replace existing native vegetation. The
active - and increasingly legislative - discouragement and/or prohibition of
large scale clearance of native vegetation in most (though not all)
jurisdictions, and hence most plantation regions, was noted by EA, and led to
the following comment:
Plantations can provide good biodiversity conservation outcomes
where they are designed as a mosaic consisting of plantation stands and remnant
native vegetation. This can avoid monocultures of lower biodiversity value. Importantly,
links between native vegetation remnant along vegetated gullies and streamlines
appear to be critically important for many native species surviving in a
plantation-modified agricultural environment, and these remnants should be a priority
for conservation. Away from streams, the plantations matrix could provide vital
cover for the movement of native species across the landscape, providing the
native vegetation remnant patches remain intact.[143]
4.10
EA officers told the Committee that the gradual, but
significant, changes in practices involving broad-scale clearing were now
having an impact in all states that observed the terms of the National
Framework for the Management and Monitoring of Australia's Native Vegetation issued
by EA.[144]
4.11
During the inquiry the Committee has perceived a
growing awareness of, and at times concern for, environmental issues within the
communities that have plantation forestry developments. This perception has
been supported by evidence to the inquiry and relates to the other aspect of
Strategic Element 4.
Social and Community Views on Plantation
Forestry Development
4.12
In its submission, the Bureau of Rural Sciences (BRS) "addresses
socio-economic aspects of plantations" and "draws from the findings
of recent socio-economic studies examining the Australian plantation sector".[145]
4.13
BRS noted that socio-economic factors were clearly
identified as impediments to achieving the 2020
Vision:
Recent socio-economic studies have identified negative
perceptions of plantation expansion in several regions where this expansion is
currently occurring. These perceptions are of sufficient scale and intensity to
affect the future development of tree plantations. Clearly, community views
that plantations have negative impacts are an impediment to achieving the aims
of the 2020 Vision. Perceived negative impacts include:
-
Reduced population in rural communities, and
associated loss of services and sense of community;
-
Declining quantity and/or quality of available
employment;
-
Impacts on the environment (not reviewed further
here as this submission focuses on socio-economic issues);
-
Impacts on neighbouring landholders such as
fencing issues, shading and other plantation management practices;
-
Use of chemicals thought to be potentially
harmful to the health of residents in local communities;
-
Impacts on rural roads requiring
upgrading/maintenance for which funding has not been provided, and road safety
concerns for other road users; and
-
Impacts on other businesses in the region, such
as tourism.[146]
4.14
The BRS submission, in drawing attention to these
categories of possible difficulties, also stressed the more positive feedback
from an established plantation community in NSW. However, such findings may not
show negative impacts in the wider geographical area of the town involved:
To date, only one regional study has adequately assessed the
social and/or economic impacts of plantations (for example, whether plantation
expansion has been directly responsible for population decline). Dwyer
Leslie et al. (1995) examined
employment and population impacts of plantations, particularly plantation
processing development, in Oberon, NSW. This study found that plantations had
mostly positive impacts, particularly in terms of expanding employment and
population associated with establishment of processing infrastructure in the town.[147]
4.15
Clearly, community views can and do act as an impedient
or obstacle to the growth of a plantation forestry industry, and therefore the
achievement of the 2020 Vision. The consensus of findings to date on
community opposition to plantations indicates that opposition groups are
regionalised, with little or no interaction with other groups in the wider
area. Objections are voiced through "public meetings, writing letters to
media and politicians, and using available regulatory and planning mechanisms."[148]
4.16
Further, this study confirms evidence to the Committee
from a number of community sources that community attitudes in regions affected
by plantation development may oppose either individual plantation schemes, or
plantation development in general, and that conflict arises between opponents
and supporters:
Advocates of plantation forestry
commonly felt the concerns raised by individuals objecting to plantation
forestry were not legitimate. Where concerns were considered as being
potentially valid, both objectors to and advocates of plantation forestry
reported a lack of independent scientific information with which to evaluate
the possible impacts of plantation forestry at local and regional levels.[149]
4.17
The BRS submission pointed to another study conducted
by the same researcher that suggests a way to address this problem:
Schirmer (2002, 2003) found in Western
Australia that community concerns were resolved by
improving communication between plantation companies and local communities, and
by increased willingness by plantation companies to change some of their
practices to address community concerns. In particular, consulting neighbouring
landholders before undertaking planned activities, and making changes to lessen
the potential for negative impacts, has improved relations. Discussions about
appropriate road use practices with local community members, coupled with
changes to road use in some cases, have also defused conflict.[150]
4.18
A review of studies of the socio-economic impact of
forest industries - including plantation forestry - identified a number of
areas that have also been the focus of submissions to the Committee, namely:
-
That regional communities dependent on native
forests were deeply concerned with resource security and the high level of risk
associated with future investments;
-
The forest industry is interlinked with the rest
of the economy. Its non-timber inputs represent the outputs of other
industries, and its timber outputs represent the inputs of arrange of
industries;
...
-
The role of plantations as a major contributor
to regional and community development through social, economic and
environmental benefits is now widely recognised. However, in addition to a range
of positive outcomes, the changes that new industry activities provide have
brought their own level of uncertainty; and
-
The recent investment in hardwood plantation
development has taken place across a number of regions, against a backdrop of
the long-term social trends in real communities. Trends include ageing
populations, diminishing interest in family members remaining on farms, and a
significant increase in the size of farms.[151]
4.19
These studies and the submissions made by BRS are reflected
in the submissions made by the plantation industry, and those interested in the
importance of community acceptance and support for plantation development.
4.20
In its submission, NAFI, when addressing the issue of "the
changing nature of Australia's
forest resources and rural communities", noted that:
Substantive changes in the native
forest and plantation resources available for harvesting have had numerous
effects on Australia’s timber communities. In some cases, there have been job
losses as native forest access was withdrawn and mills closed down. In other
areas, jobs have been created to support the recent growth in Australia’s plantation estate.[152]
4.21
NAFI continued by acknowledging that the increased
investment in the plantation forest industry has coincided with changes to
local communities. Further, the viability of the industry has led to it being
"concentrated in those areas, which also happen to be relatively
productive farming land, with good soils and moderate to high annual rainfall".
However, it commented that:
Unfortunately, the changes to regional communities resulting
from the new investment in plantations has been extremely difficult to
differentiate from the long-term and underlying trends of change in rural Australia.
A common concern raised in regards to the expansion of
plantation forestry is that the new investment has lead to an accelerated decline
of many smaller communities.
....
While it is difficult to determine whether the changes in
any one rural community are the result of the underlying trend or the growth of
a visible new industry, other factors need to be taken into account when
determining if plantation forestry is beneficial for Australia’s rural
communities. [153]
4.22
The difficulties which are causing concern about large
scale plantation development, particularly in rural and regional communities
are becoming increasingly well recognised. The Committee's inquiry, for
example, has shown that a number of communities are concerned, not only with
the issues highlighted above but also with wider issues such as reduction in water
catchment flows, or a relatively sudden and apparently irrevocable alteration
of an agricultural community to a plantation community.[154] It is these
concerns that, if not addressed, will act as impediments to the growth of the
plantation forest industry. Community views have the potential to act as both
as obstacles and restraints. For example, local communities can act to ensure
that more rigourous and possibly 'anti-plantation' planning requirements are
enacted or enforced.
Alterations to Strategic Element 4
4.23
The Committee notes that Strategic Element 4 has been
cast so that such concerns can be considered. Action 13, in particular, is
formulated to address the major element in these concerns, principally the
involvement of 'stakeholders' (which the Committee considers should include the
widest group possible) and communities in the strategic role of plantations in
wood and fibre supply and environmental service delivery. This community
consultation will be vital to any achievements to be made under the 2020
Vision strategy. The Committee believes that the consultation should
be transparent and be able to deliver recognisable results to all involved.
Without such results the rural communities may ultimately withdraw their
participation in the process.
4.24
Therefore, the Committee supports the clear
identification of outcomes under Action 13 against specific matters. For
instance, it will be important for the annual report from the Coordinator,
recommended by the Committee in Chapter Nine (see paragraphs 9.24-9.26), to
identify how and to what extent the expected outcomes have been achieved in each
of the plantation regions, and to identify those regional, local government and
community bodies that have participated in the actions envisaged in Action 13.
4.25
The Committee suggests the following as two examples of
assessment that need to be undertaken, and the information reported on, by the
National Strategy Coordinator in reports on the 2020 Vision goals. How, for example, further reviews of social and
community responses to plantation development are to be set up and carried out
by the BRS and others; and how the Coordinator and other bodies (such as PFDCs)
work with local government and with catchment management authorities.
4.26
Further, the Committee has concerns about the continued
funding of the Private Forestry Development Committees (PFDC, formerly the
regional plantations committees - RPCs). The Committee notes that these bodies
have:
... established links variously to the forest industry, regional
development groups (e.g. agribusiness fora), regional transport infrastructure
initiatives, local government and revegetation initiatives, and, in some cases,
directly with landholders, the RPCs are significant players in regional
investment and in delivery mechanisms. Further as conduits and facilitators for
farm forestry, the RPCs will continue to be effective in promulgating the
benefits of a commercial approach to revegetation and linking environmental
planting with existing industry structures to promote economically viable
solutions to the challenges of natural resource management.[155]
4.27
PFDCs are therefore important and can contribute to
achieving successful outcomes under Action 13. The Committee notes that funding
for the RPCs for the 2003-2004 financial year was provided under the national
component of the Natural Heritage Trust. The Natural Heritage Ministerial Board
(NHMB) made a decision regarding RPC funding in September 2003. The NHMB
allocated $1.235 million for the 2003-04 financial year to RCPs.[156]
4.28
The Committee notes that the Commonwealth is yet to
determine the most appropriate funding model for RPCs in the longer term. The
Committee believes that the contribution that could be made by PFDCs to the
outcomes sought under Action 13 could be greater if funding to these
organisations was not subject to yearly review.
Recommendation 5
4.29
The Committee therefore recommends that funding for
Private Forestry Development Committees (PFDCs) be made over a 3 year period,
subject to the delivery of outcomes against Action 13 of the 2020
Vision for plantation forests.
4.30
In addition to Actions 14 and 15, the Committee
believes that an assessment or report by the Coordinator should identify weak
points or contradictions in achieving Strategic Element 4. This is particularly
important because, in the Committee's view, there are inherent contradictions
within that Strategic Element. Accordingly, the Committee makes specific
recommendations on these matters.
Recommendation 6
4.31
The Committee recommends
that the following matters be included in any report prepared by the
Coordinator:
-
Actions under Strategic Element 4 be reported
against expected outcomes with regard to involvement of stakeholders in
achieving the Strategic Element goals. Each report by the Coordinator should
provide detail of how stakeholders have been involved in each year's goal
achievement and a measure of stakeholders' satisfaction.
-
Assessment or report on Actions - especially
Action 13 under Strategic Element 4 - should give details of consultation,
contact or involvement with local governments and Regional Catchment Management
Authorities in achievement of expected outcomes under the Action.
-
Details of current and proposed reviews and/or
studies of social and community responses to further plantation development to
be conducted by the Bureau of Rural Sciences and other bodies such as the
Forest and Wood Products Research and Development Corporation.
In addition, the Committee makes
the following recommendation on the role of Strategic Element 4 in achieving
the 2020 Vision goals.
Recommendation 7
4.32
The Committee recommends
that research and other studies to be carried out under Action 13 of Strategic
Element 4 (which involve consultation with Catchment Management Authorities) be
the subject of specific report by the Coordinator.
Conclusion
4.33
The Committee has provided an analysis of Strategic
Element 4 under the 2020 Vision
required by term of reference (b). The recommendations anticipate that the
Committee's recommendations in Chapter Nine will be accepted and implemented.
It identifies those actions under Strategic Element 4 which will require
specific detailed reporting by the Coordinator to give effect to that Strategic
Element and the identified expected outcomes.
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