Chapter nine - 2020 Vision: Accountabiilty and achievement issues
Introduction
9.1
The Committee has commented on Strategic Elements 1 to
4, and possible alterations or amendment to those Elements (see chapters 3 and
4). The Committee considers an important aspect of the revised 2020 Vision is the addition of a
specific Strategic Element to provide machinery for the systematic monitoring
and review of the achievement of 2020
Vision goals and the performance against expected outcomes in Strategic
Elements 1 to 4.
9.2
Strategic Element 5 has as its description:
Monitoring the
progress of the Plantations 2020 Vision, and supplying that information to a
review process, is critical to delivering meaningful outcomes for Vision
stakeholders. Monitoring should take into account not only progress against
Vision Actions and the planted area target, but also the social, economic and
environmental effects of plantation development, particularly for rural
communities.[395]
9.3
Under Action 16, the following goals are set:
-
Review and report on progress against Vision
Actions;
-
Develop indicators for social environmental and
commercial outcomes of the Plantations 2020 Vision; and
-
Develop a Vision framework that is both
reflective and forward looking.[396]
9.4
The responsibility for the implementation of Actions
under Strategic Element 5 (Action 16) is stated as:
Coordinator, working with industry and
Government representatives to review progress with implementing the Vision
Actions. Coordinator to identify future activities required to maintain plantation
investment and monitor the effects of 2020 Vision implementation.[397]
9.5
Expected outcomes listed under Action 16 are:
-
Identification of new or continuing plantation
investment impediments that need to be addressed, and provision of options to
overcome those impediments;
-
Identification of new opportunities to expand
the plantation sector; and
-
Monitoring of social, environmental and economic
outcomes of 2020 Vision Actions.[398]
Accountability
9.6
The Committee did not receive many views on how this
Strategic Element was to be interpreted, and whether it might be amended or
altered in light of, for example, experience in the development of the
plantation industry since 1997. However, the Committee is of the view,
particularly given the Tasmanian experience, that an accountability mechanism
is critical to the development of a sustainable plantation industry. DC Mills
from Tasmania indicated that:
All protection of the plantation
industry from socially and ecologically sustainable planning legislation should
be removed. Specifically it should be made accountable to regional communities
through local government to ensure they meet local social and ecological needs.[399]
9.7
NAFI also noted that there have been a "broad
range of misunderstandings and misconceptions about the expanding plantation section"
which has lead to the "build-up of community resentment to future plantation
establishment in some areas.":[400]
At the present time, it is difficult
to quantitatively assess the progress of the 2020 Vision. The final action of
the revised strategy indicates the importance of having adequate criteria for
measuring the success or impact of the 2020 Vision. Not having quantifiable
criteria in place is recognised as an impediment to the growth of the
plantation estate as it becomes difficult for investors to gauge the outcomes
of their investments and it allows community resentment to build up where there
are concerns or misconceptions about the nature of the sector.[401]
9.8
NAFI recommended that "the final action of the
revised 2020 Vision should contain
specific criteria for measuring the changes associated with implementing the
revised strategy."[402]
9.9
The Committee notes that in the revised 2020 Vision, the discussion on
accountability focussed on internal accountability, and the issue of
accountability to the wider community was not canvassed:
Industry is accountable to the
executives and boards of the major forest industry groups - PTAA, AFG and NAFI,
- for implementing the strategy to achieve the Vision. Each year industry will
report on its progress through these industry groups.
The Australian Government and the
State and Territory Governments will report to the Primary Industries
Ministerial Council on progress towards the Vision.[403]
9.10
The Committee strongly believes that the accountability
mechanism, combined with a role of identifying opportunities for development,
research and investment should be encouraged. Given the government involvement,
there should also be some accountability to the community at large.
Monitoring and Review of the 2020 Vision
9.11
The Committee notes that the revised 2020 Vision makes the following
provisions for monitoring and review of the 2020
Vision:
The National Plantation Strategy Coordinator
will prepare an annual report as soon as possible after 30 June each year,
reporting on progress in implementing actions in the strategic framework for
consideration by the Vision Partners. Progress towards the notional plantation
area target will be reported through the National Plantation Inventory's annual
tabular reports and major five-yearly reports on Australia's
plantation.
The 2020 Vision framework will be
reviewed every five years and revised as considered necessary with the next
review and revision to be completed by the end of 2007.[404]
9.12
The Committee sought advice on a number of issues
raised by the proposed monitoring and review structure. It referred them to the
National Coordinator, Mr Rod
Bristow, in March 2004 and
addressed the following:
-
the role and function of the Coordinator;
-
funding arrangements for the Coordinator's office;
-
the Coordinator's consultation plans;
-
form of monitoring of social, environmental and
economic outcomes (including the possible role for PFDC's and Private Forests Tasmania);
-
reporting responsibility by the Coordinator;
-
identification of new or continuing 'plantation
investment impediments'; and
-
a timetable for developing further fine-tuning
of the 2020 Vision to allow for a
'framework that is both reflective and forward looking'.[405]
9.13
Mr Bristow
gave the Committee the following advice on each issue:
Role and Function of the
Coordinator
The Coordinator's role is to monitor
the Vision partner's progress against each of the Actions in the Revised
Vision. This role is managed by the PFCC, who have a 3-year plan and a more
detailed 12-monthly set of tasks which highlight work to be done to achieve the
Revised Vision Actions. As the Vision document is a 'living' document, these
tasks constantly evolve in response to the changing environment related to
plantation development. This is monitored by the PFCC in determining the
priorities for the Coordinator's position.[406]
Funding Arrangements for the
Coordinator's Office
The Coordinator's position is equally
funded by the Commonwealth (one third, through DAFF), the States/Territories
(one third, through the FFPC) and the industry (one third). The industry is
represented by the National Association of Forest Industries, the Plantation
Timber Association of Australia, and Australian Forest Growers. These funds are
raised via invoice to each of the parties.[407]
Coordinator's Consultation
Plans
The Coordinator works with the Vision
partners; who are implementing the Vision actions directly and indirectly
through their participation in plantation development. Also, in regard to
appropriate indicators of social and environmental performance, the Coordinator
plans to consult with the Bureau of Rural Sciences, the Private Forestry
Development Committees (PFDC's) and Local Government to monitor the
implementation of the Vision Actions.[408]
Form of Monitoring of Social,
Environmental and Economic Outcomes and Possible Role for Regional Plantation
Committees, Private Forest
Development Committees and Private Forests Tasmania
The indicators developed for
monitoring are likely to be adopted across all plantation regions, and focus on
key factors like the total employment contribution of the plantation growing
and processing industry, the environmental performance on [sic] plantations with regard to soil conservation and water quality
protection, and water use by plantations. The PFDC's will be consulted on these
issues; including Private Forests Tasmania
with regard to the current and likely future range of issues associated with
plantation development in Tasmania.[409]
Reporting Responsibility by
the Coordinator
The Coordinator reports to the PFCC, and
provides regular updates of progress against the Vision Actions. This
information is available through the PFCC secretariat, currently run by the
Department of Agriculture, Fisheries and Forestry.
The Coordinator's role is one of
information gathering and dissemination. To this end, the process of utilising
both print and electronic media is used extensively to convey messages related
to plantations and plantation development. This information is published on the
Plantations 2020 website.[410]
Identification of New or
Continuing 'Plantation Investment
Impediments'
A range of impediments to plantation
investment are still prevalent, particularly related to inequities in the
taxation system related to the timing of revenues from plantation forestry, and
the lack of investment in new areas of long rotation plantations. The role of
the Coordinator is to work with the Vision partners to identify impediments to
investment, and to provide means of addressing these through the industry and
government commitment to creating and enabling environment for plantation
development.
The publishing of this information is
at the discretion of the PFCC members, whose businesses may be affected by
issues such as those identified by the Coordinator.[411]
Timetable for Developing a 'Vision
Framework that is both Reflective and Forward Looking'
The Vision is subject to formal review
every five years, at which time the issues and opportunities that have arisen
during a period of plantation development are formally incorporated into a Revised
Vision document (as evidenced by the recently completed review process). The
Vision framework, in concert with this process, will evolve to be both
analytical as well as predictive with regard to Australian plantation forestry.[412]
Comment
9.14
The central role of the Coordinator, in view of the
advice provided to the Committee, will primarily be to advance the interests of
plantation investment and development. The Committee considers these aims as
valid and forward looking. However, it would sound a note of caution that,
although the Coordinator works to advance the interests of the industry, the
position should be free of political and industry interference in the conduct
of the duties.
9.15
Further, the Committee wants to highlight two factors that
should be given greater emphasis and be subject to more definite reporting
requirements to be placed on the Coordinator. These are:
-
Initiation, coordination and collection of
research, particularly on the social, economic and environmental results of
plantation development; and
-
Timetabling and reporting on this and monitoring
of the achievement of the whole range of 2020
Vision goals.
Research and Monitoring of Social, Economic and
Environmental Results of Plantation
Development
9.16
Monitoring and analysis of the results of the program
described to the Committee is dependent on coordinated research into the
social, economic and environmental effects of the plantation industry. Issues
seen as possible impediments under the 2020
Vision, may also be properly seen as matters providing balance against excessively
rapid development.
9.17
In addition, the existing framework of forestry
development policy, including plantation forestry, needs a degree of government
and industry coordination, either through the RFA process, or other cooperative
arrangements.
9.18
Further, the level of current and continuing monitoring
of the plantation forest estate - through the National Forest Inventory, ABARE
and ABS figures and the BRS surveys of the national plantation estate - mean
data on plantations is up-to-date and available. As well, BRS work and surveys
carried out on social and economic changes and effects resulting from plantation
development form a basis for assessment of achievement against those goals in
Strategic Element 5. Establishing appropriate and meaningful benchmarks should
not be a difficult task.
Timetabling and Reporting on Monitoring and
Review of the 2020 Vision Goals
9.19
In view of the specific and detailed arrangements made
for setting up a Coordinator's position, and the expectations of its
performance, the Committee expects and anticipates that there should be an
arrangement for reporting progress on the 2020
Vision goals to the community at large.
9.20
The information provided to the Committee by the
Coordinator in March 2004 suggests there is not such a program. The 2020 Vision provides a timetable for a
regular report from the Coordinator to the 2020
Vision partners (the Commonwealth and State Governments and industry). Given
the strong element of Commonwealth and state government contribution, the
Committee believes that, with the exception of commercial-in-confidence or
market information, all information gained by the Coordinator in the monitoring
and review process should be available to the community, especially those
communities where plantations may have become a central part of the local
economy.
9.21
The Committee considers the most effective means of making these reports available would be for the
responsible Minister to present the report to the Parliament.
9.22
The Committee sees considerable benefit in this proposal.
It would enable parties interested in 2020
Vision outcomes to share in the outcomes of the coordination and monitoring
role. In case industry sees this proposal as a possible means of undermining
the 2020 Vision program, the Committee
need only note that, to date, it is a lack of information on industry
performance and priorities that has caused misunderstandings and controversy.
9.23
The Committee therefore makes the following
recommendations.
Recommendation 14
9.24 The Committee recommends Strategic
Element 5 be amended to provide that the National Plantation Strategy Coordinator
prepare an annual report detailing the plantation industry's performance
against the expected outcomes of each of the 14 principal Actions required by
the 2020 Vision program.
Recommendation 15
9.25 The
Committee recommends that the National Plantation Strategy Coordinator's annual
report also indicate the extent of research and/or assessment work (and
results) carried out by the Coordinator, industry and other agencies, applicable
to plantation development.
Recommendation 16
9.26 The
Committee recommends that the National Plantation
Strategy Coordinator's report is presented to the Minister for Agriculture,
Fisheries and Forestry, and to the Minister for Environment and Heritage, and
to the Ministers equivalent
in each State.
Recommendation 17
9.27 The
Committee recommends that the National
Plantation Strategy Coordinator's report is tabled in the Commonwealth and
State Parliaments within a month of the relevant Minister receiving it, so as
to allow scrutiny by the parliament and the community of the achievement of 2020 Vision goals.
Aden Ridgeway, Senator for New South Wales
Chair
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