Wood Pulp and

Waste Paper

USITC Publication 3490

February 2002

OFFICE OF INDUSTRIES

U.S. International Trade Commission

Washington, DC 20436
UNITED STATES INTERNATIONAL TRADE COMMISSION

This report was prepared principally by

Fred Forstall

Animal and Forest Products Branch

Agriculture and Forest Products Division

Vern Simpson

Robert A. Rogowsky

Address all communications to

Secretary to the Commission

United States International Trade Commission

Washington, DC 20436

COMMISSIONERS

Deanna Tanner Okun, Vice Chairman

Stephen Koplan, Chairman

Lynn M. Bragg

Marcia E. Miller

Jennifer A. Hillman

Director of Industries

Director of Operations

www.usitc.gov
OMB No.: 3117- 0188

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ITS: Wood Pulp and Waste Paper
 

1

 The information and analysis provided in this report are for the purposes of this report only. 

Nothing in this report should be construed to indicate how the Commission would find in an

investigation conducted under statutory authority covering the same or similar subject matter.

i

PREFACE

In 1991 the United States International Trade Commission initiated its current Industry and

Trade Summary series of informational reports on the thousands of products imported into

and exported from the United States. Each summary addresses a different

commodity/industry area and contains information on product uses, U.S. and foreign

producers, and customs treatment. Also included is an analysis of the basic factors affecting

trends in consumption, production, and trade of the commodity, as well as those bearing on

the competitiveness of U.S. industries in domestic and foreign markets.1

This report on wood pulp and wastepaper covers the period 1996-2000. Listed below are the

individual summary reports published to date on the agriculture and forest product sectors.

USITC

publication Publication

number date Title

2459 November 1991 ........ Live Sheep and Meat of Sheep

2462 November 1991 ........ Cigarettes

2477 January 1992 .......... Dairy Produce

2478 January 1992 .......... Oilseeds

2511 March 1992 ........... Live Swine and Fresh, Chilled, or

 Frozen Pork

2520 June 1992 ............. Poultry

2544 August 1992 ........... Fresh or Frozen Fish

2545 November 1992 ........ Natural Sweeteners

2551 November 1992 ........ Newsprint

2612 March 1993 ........... Wood Pulp and Waste Paper

2615 March 1993 ........... Citrus Fruit

2625 April 1993 ............ Live Cattle and Fresh, Chilled, or

Frozen Beef and Veal

2631 May 1993 ............. Animal and Vegetable Fats and Oils

2635 June 1993 ............. Cocoa, Chocolate, and Confectionery

2636 May 1993 ............. Olives

2639 June 1993 ............. Wine and Certain Fermented Beverages

2693 October 1993 .......... Printing and Writing Paper

2702 November 1993 ........ Fur Goods

2726 January 1994 .......... Furskins

2737 March 1994 ........... Cut Flowers

2749 March 1994 ........... Paper Boxes and Bags

2762 April 1994 ............ Coffee and Tea

2859 May 1995 ............. Seeds

2865 April 1995 ............ Malt Beverages
ii

PREFACE—Continued

USITC

publication Publication

number date Title

2875 May 1995 ............. Certain Fresh Deciduous Fruits

2898 June 1995 ............. Certain Miscellaneous Vegetable

 Substances and Products

2917 October 1995 .......... Lumber, Flooring, and Siding

2918 August 1995 ........... Printed Matter

2928 November 1995 ........ Processed Vegetables

3015 February 1997 ......... Hides, Skins, and Leather

3020 March 1997 ........... Nonalcoholic Beverages

3022 April 1997 ............ Industrial Papers and Paperboards

3080 January 1998 .......... Dairy Products

3083 February 1998 ......... Canned Fish, Except Shellfish

3095 March 1998 ........... Milled Grains, Malts, and Starches

3096 April 1998 ............ Millwork

3145 December 1998 ........ Wool and Related Animal Hair

3148 December 1998 ........ Poultry

3171 March 1999 ........... Dried Fruits Other Than Tropical

3268 December 1999 ........ Eggs

3275 January 2000 .......... Animal Feeds

3350 September 2000 ........ Grain (Cereals)

3352 September 2000 ........ Edible Nuts

3355 September 2000 ........ Newsprint

3373 November 2000 ........ Distilled Spirits

3461 October 2001 .......... Cured Fish

3463 October 2001 .......... Fresh or Frozen Fish
iii

CONTENTS

Page

Preface .............................................................. i

Abstract ............................................................ 1

Introduction ....................................................... 3

U.S. industry profile ............................................. 4

Raw materials and processing ............................................ 4

Industry structure ..................................................... 7

Technology .......................................................... 11

Environmental considerations ............................................ 11

Wood pulp markets .............................................. 13

Grades of wood pulp ................................................... 13

Wood pulp supply and demand ........................................... 16

Wood pulp pricing .................................................... 18

Waste paper markets ............................................ 20

Grades of waste paper .................................................. 20

Waste paper supply and demand .......................................... 22

Waste paper pricing ................................................... 26

U.S. imports ....................................................... 27

Wood pulp .......................................................... 27

Waste paper ......................................................... 30

U.S. exports ........................................................ 31

Wood pulp .......................................................... 31

Waste paper ......................................................... 31

U.S. trade measures.............................................. 35
iv

CONTENTS—Continued

Page

Foreign industry profile ........................................ 35

North America ....................................................... 40

Europe ............................................................. 41

Asia ............................................................... 41

South America ....................................................... 43

Foreign trade measures ......................................... 45

U.S. trade balance ................................................ 45

Appendixes

A. Explanation of tariff and trade agreement terms ................................. A-1

B. Statistical tables and figures ............................................... B-1

C. Description of waste paper recovery, reuse, and grades ........................... C-1

D. Descriptions of chemical and mechanical pulping processes ........................ D-1

E. Descriptions of process improvements and technical innovations .................... E-1

F. Summary of pertinent environmental law & regulations ........................... F-1

Figures

1. U.S. annual recovery of waste paper, 1997-99 .................................. 6

2. Pulp and paper industry product flow ........................................ 8

3. Wood pulp categories .................................................... 13

4. U.S. domestic price, market de-inked pulp vs. southern bleached hardwood kraft,

1994-2000 .......................................................... 16

5. U.S. price, 1980-2000, northern bleached softwood kraft .......................... 20

6. Midwestern waste paper prices (dollars per metric ton, f.o.b. seller’s dock), 1993-2000 ... 27

Tables

1. Wood pulp: U.S. production, exports, imports, and apparent consumption, 1996-2000 ... 8

2. U.S. wood-pulping capacity by region, 2000 ................................... 9

3. Average hourly earnings of production workers, 1995-99 .......................... 10

4. Market pulp: U.S. production, exports, imports, and apparent consumption, 1996-2000 . . 17

5. Market pulp: U.S. shipments by grade, 1995-2000 .............................. 17

6. U.S. producers of market pulp by capacity, 1998 ................................ 18

7. Waste paper: U.S. recovery by grade, 1995-99 ................................. 21

8. Waste paper: U.S. collections, exports, imports, and apparent consumption, 1996-2000 . . 23

9. Wood pulp: U.S. imports for consumption by principal source, 1996-2000 ............ 28
CONTENTS—Continued

Page

v

Tables—Continued

10. Wood pulp and waste paper: U.S. imports by grade, 1996-2000 .................... 29

11. Waste paper: U.S. imports for consumption by principal sources, 1996-2000 .......... 30

12. Wood pulp: U.S. exports by principal markets, 1996-2000 ........................ 32

13. Wood pulp: U.S. exports by region, 1996-2000 ................................ 33

14. Wood pulp and waste paper: U.S. exports by grade, 1996-2000 .................... 33

15. Waste paper: U.S. exports by principal markets, 1996-2000 ....................... 34

16. Harmonized Tariff Schedule Chapter 47, Wood pulp and waste paper: Subheading,

description, and rate of duty ............................................. 36

17. World wood pulp and waste paper: Mills, capacity, capacity utilization, imports,

exports, and apparent consumption 1996-2000 ............................... 37

18. Total and market pulp production: Top 10 countries, 2000 ........................ 39

19. Wood pulp: Major world importers and U.S. market share, 2000 ................... 39

20. Waste paper: Major world importers and U.S. market share, 2000 .................. 40

21. Wood pulp: U.S. trade balance, 1996-2000 .................................... 46

22. Waste paper: Trade balance, 1996-2000 ...................................... 47

1

ABSTRACT

This report summarizes trade and industry conditions for the wood pulp and waste paper

industry for the time period 1996-2000. Wood pulp and waste paper are both intermediate

products and are used as raw materials in the manufacture of paper, paperboard, and other

wood-fiber-based products.

• The U.S. pulp and paper industry benefits from abundant raw materials,

extensive supporting infrastructure, and a large domestic market. Large,

technically sophisticated, and capital-intensive U.S. mills produced 31 percent

(57 million metric tons) of global pulp production in 2000, but have been impacted

by the strength of the U.S. dollar and aggressive competition from other

countries. Forest products firms, both foreign and domestic, are driving further

industry consolidation.

• In 2000, market pulp (wood pulp sold in the open market), a globally traded

commodity, accounted for 23 percent of world production of wood pulp. It is

estimated that 68 U.S. mills produced market pulp and that U.S. capacity was

approximately 8.7 million metric tons. Despite long-term demand growth, shortterm economic cycles and inelastic supply caused significant price volatility.

Increasing recoveries of waste paper continued during 1996-2000. Total

recoveries reached 44.9 million metric tons. Approximately 240 U.S. mills use

recycled fiber.

• During 1996-2000, U.S. wood pulp imports (6.6 million metric tons valued at $3.3

billion in 2000) came principally from Canada and Brazil, but U.S. exports (6.1

million metric tons valued at $3.4 billion in 2000) were shipped to more than 100

countries. Canada and Mexico supplied virtually all waste paper imports in 2000

(552,000 metric tons valued at $91 million), but imports were only a small

fraction of total domestic consumption of waste paper. The United States is the

world’s largest exporter of waste paper. In 2000 exports were 9.9 million metric

tons valued at $1.2 billion.

• In 2000, global production of wood pulp was 187 million metric tons. The top

three producing regions include North America, Europe, and Asia. Due to the

natural advantage afforded by fast-growing tree species and favorable growing

conditions, South America is expected to continue increasing its pulp production.

• U.S. imports of wood pulp and waste paper are free of duty. In all major

markets for wood pulp there is little or no duty on either wood pulp or waste

paper. Likewise, trade in either wood pulp or waste paper is generally not

affected by nontariff barriers. The U.S. wood pulp trade balance remained

positive but declined from $696 million in 1996 to $125 million in 2000. The

decrease resulted from a decrease in exports of 580,000 metric tons and an

increase in imports of 1.4 million metric tons. In contrast, the waste paper trade

balance has grown from $690 million in 1996 to $1.1 billion in 2000, as exports

of waste paper expanded by 3.4 million metric tons during 1996-2000.

 

1

 “Annual Review,” Pulp & Paper International, Vol. 43, No. 7 (July 2001), p. 9.

 

2

 American Forest &Paper Association, 2000 Statistics - Data Through 1999, Paper,

Paperboard, and Wood Pulp (Oct. 2000), p. 60.

3

INTRODUCTION

This summary covers wood pulp and waste paper, which are classified in Chapter 47 of the

Harmonized Tariff Schedule of the United States (HTS). Neither wood pulp nor waste paper

is a final product; rather both are used as raw material in the manufacture of paper,

paperboard, and other wood-fiber-based products. This summary outlines the structure of the

U.S. pulp and paper industry and certain foreign industries, domestic and foreign tariff and

nontariff measures, and the competitiveness of U.S. producers in both domestic and foreign

markets. This report generally covers the time period of 1996 to 2000. Appendix A contains

an explanation of tariff and trade agreement terms. 

Wood pulp is the fibrous material that results when wood is separated into its constituent

fibers by chemical or mechanical means. Waste paper is composed of previously discarded

paper or paperboard products. Both contain cellulose fiber that can be subsequently combined

with other inputs to manufacture paper, paperboard, or other wood-fiber-based products. In

2000, the U.S. industry produced 57 million metric tons of wood pulp and recovered over 44.9

million metric tons of waste paper.1

In 1999, wood pulp supplied 63 percent of the total fiber consumption in U.S. paper and

paperboard mills. Waste paper supplied most of the rest.2 In recent years the usage of waste

paper has increased dramatically. For most applications pulp made from waste paper is

combined with virgin wood pulp during the manufacture of a final product. However, some

products (e.g., paperboard, containerboard, and tissue) can be manufactured entirely from

recycled pulp, and recent advances in papermaking technology have greatly improved the

quality of paper manufactured from 100 percent recycled pulp.

U.S. imports of wood pulp in 2000 amounted to 6.6 million metric tons, valued at $3.3 billion,

and represented 11.5 percent (by quantity) of total consumption. U.S. exports of wood pulp

amounted to 6.1 million metric tons, valued at $3.4 billion and were equivalent to 10.7 percent

of total production. In 2000 imports of waste paper totaled 552,000 metric tons and were

valued at $91 million. Imports, however, accounted for only 1.5 percent of domestic

consumption (by quantity). Exports of waste paper in 2000 were significantly greater than

imports, reaching 9.9 million tons valued at $1.2 billion.
 

3

 Some paper mills, although primarily engaged in the manufacture of paper products, also

manufacture pulp for sale to other manufacturers of paper products. Wood pulp and waste paper

are also found in Chapter 26 of the Standard Industrial Classification (SIC 2611).

 

4

 AF&PA, 2000 Statistics, p. 60.

 

5

 USFS, 1997 RPA Assessment, The United States Forest Resource Current Situation found at

http://www.srsfia.usfs.msstate.edu/wo/final_RPA_TABLES.pdf, retrieved on Aug. 10, 2000.

 

6

 A tree plantation is a forest established by planting or seeding during the process of either

afforestation or reforestation.

4

U.S. INDUSTRY PROFILE

As noted above, wood pulp and waste paper are classified in Chapter 47 of the HTS. The

applicable North American Industry Classification System (NAICS) numbers and descriptions

are Pulp Mills (322110) and Paper Mills (32212).3

Raw Materials and Processing

Sources of fiber for making paper include wood, waste paper, nonwood agricultural fibers,

and inorganic fibers. In the United States the most economical and practical fibers are those

derived from wood. In 1999, wood pulp supplied 63 percent of the total fiber consumption in

domestic paper and paperboard mills. Waste paper supplied most of the rest; nonwood fibers

supplied less than 1 percent.4

In the United States, both softwood (conifers) and hardwood (broad-leaved) trees are

important sources of fiber for the manufacture of wood pulp. In 1996, softwoods comprised

57 percent of the country’s fiber harvest for pulping.5 Softwoods, which generally have longer

fibers than hardwoods, are used when strength is a desirable quality in the finished product

(e.g., paperboard). Favorable silvicultural characteristics allow softwoods to be intensively

managed in tree plantations6 throughout the timber-producing portions of the country. The

shorter fibers of the hardwoods that supply the balance of fibers for pulping are used when

smoothness is a desirable quality (e.g. printing and writing papers). Many species of

indigenous hardwoods are represented in natural hardwood stands or mixed pine/hardwood

stands that spread across the United States. Typically, the many species of hardwoods are not

segregated when harvested but are sent to the mills as loads of mixed hardwood. The presence

of different species increases the difficulty of pulping but does not prevent pulp mills from

utilizing mixed hardwoods successfully.

For special applications or where standing trees are in short supply, other plant fibers (e.g.,

cotton, bagasse, rice, straw, bamboo, or kenaf) have also been utilized as a raw material for

pulping. Most notably in the United States, cotton fiber is utilized for the production of bond

papers and certain industrial papers. Cotton fiber accounts for less than 1 percent (by weight)

of the fiber used for pulp and is not considered in this summary.
 

7

 The term, “virgin”, in this context, implies fiber that has been produced from trees harvested

and transported from the forest. Trees too small to be used to produce solid wood products (e.g.

lumber, plywood) are referred to as pulpwood and are used wholly for the manufacture of pulp.

 

8 Pulp & Paper, 1999 North American Factbook, (San Francisco, Miller Freeman, Inc.,

1998), p. 137.

 

9

 AF&PA, 2000 Statistics, p. 60.

 

10 Pulp & Paper, 1999 North American Factbook, p. 138.

 

11 Bark removed is typically collected and burned as fuel in the mill power boilers.

 

12 Pulp & Paper, 1999 North American Factbook, p. 138.

 

13 Waste paper is also referred to as “recovered” paper.

 

14 U.S. Environmental Protection Agency, “Materials Generated in the Municipal Waste

Stream, 1960 to 1998,” found at http://www.epa.gov/garbage/99tables.pdf, retrieved June 27,

2001.

 

15 In the 1980's, as incineration of MSW declined, potential environmental hazards associated

with landfills (e.g. groundwater contamination) became evident. Environmental issues, capacity,

(continued...)

5

There are two sources for virgin wood fiber, pulpwood and residual chips.7 Pulpwood is

harvested and is cut either into short lengths (bolts) and transported or transported tree-length.

Generally, mills can transport pulpwood economically a maximum distance of about 250

miles.8 In 1999, pulpwood accounted for 78 percent of all virgin fiber used for pulp in the

United States.9 Residual chips supplied the balance. Modern sawmills recover the fiber from

those portions of a sawlog that are not suitable for lumber. The material is chipped, collected,

and transported to the pulp mill for subsequent use in the pulping process.

The major components of wood are cellulose (70-80 percent) and lignin (20-30 percent).

Lignin is the material that bonds cellulose fibers together.10 Wood pulp results when wood is

separated into its constituent fibers by either chemical or mechanical means. Chemical pulping

begins once pulpwood is debarked11 and chipped. The chips are cooked in solutions of various

chemicals, screened to remove any uncooked chips, and washed to remove the cooking

“liquor.” If necessary, the pulp is bleached to increase its purity, brightness, and whiteness.

Chemical pulping actually separates useable cellulose fibers from the lignin. As a result,

chemical pulping yields higher quality (strength and permanence) pulps albeit of lower yields

(45-55 percent) than mechanical pulps.12 

In the most straightforward form of mechanical pulping, bolts of barked pulpwood are

shredded with large, rotating grindstones. The pulp produced is called groundwood. Because

mechanical pulping does not separate lignin from cellulose fibers, groundwood pulp is lower

in strength than chemical pulp, but mechanical methods provide higher yields. Recent

technical advances combine mechanical pulping with various amounts of chemicals, heat, and

pressure. Mechanical pulps are typically used for bulky papers that require high opacity and

do not require permanence (e.g. newspapers, catalogs, low-end publishing). Often, they are

combined with varying amounts of chemical pulps to enhance the strength of the resulting

paper. Appendix D explains the various pulping processes in further detail.

Waste paper13 is all manner of previously discarded paper or paperboard products and is the

largest component of municipal solid waste (MSW) in the United States. In 1998, the United

States generated 76 million metric tons of waste paper (38 percent by weight of all MSW).14

Figure 1 illustrates the increase in U.S. annual recoveries of waste paper, which began in the

early 1980's. Amid growing difficulties associated with traditional disposal methods,15 EPA
 

15 (...continued)

or high cost led to landfill closures. New sites for landfills were difficult to find, and tipping fees

(the fees waste haulers pay to dump material at a landfill) increased. U.S. Environmental

Protection Agency, Characterization of Municipal Solid Waste in the United States - 1996

Update Report No. EPA530-R-97-015, June 1997, p. 113.

 

16 Pulp & Paper, 1999 North American Factbook, p. 238.

 

17 AF&PA recovery statistics reported in figure 1 are typically higher than EPA figures

because the EPA figures only include postconsumer waste paper recoveries. A very high

percentage of preconsumer waste paper, which includes the waste generated by manufacturers of

converted paper products, is recovered by the industry. AF&PA does not distinguish between

preconsumer and postconsumer waste pointing out that preconsumer waste would be placed in a

landfill if it were not reused by the industry. AF&PA, 2000 Statistics, p. 56.

6

Figure 1

U.S. annual recovery of waste paper, 1970-99

established a national goal to recycle 25 percent of all solid waste by 1992 and 50 percent by

2008,16 and Federal, State, and municipal governments enacted various legislation to

encourage recycling. During the 1970's recoveries increased by 3.6 percent annually. Since

1980, however, recoveries have increased on average 4.9 percent annually.17
 

18 In 1989 the paper industry, through AF&PA, set a goal to recover 40 percent of the paper

used in the United States by 1995. The goal was nearly reached by 1993, so it was extended and

increased to 50 percent by 2000. Kirk Finchem, “Recovered Paper Collection Grows, but 50%

Goal Remains Unlikely,” Pulp & Paper,Vol. 72, No. 5 (May 1998), p. 85.

 

19 Recovery rate is the ratio of recyclable paper collected to the new supply of paper and board.

 

20 AF&PA, 2000 Statistics, p. 56.

 

21 AF&PA, Paper, Paperboard, & Wood Pulp, Vol. 79, No. 2, p. 1.

 

22 Repulping is the process of separating and recovering the individual fibers contained in a

sheet of waste paper.

 

23 Subsequent papermaking cycles degrade the structure and, hence, the quality of cellulose

fibers, so paper made entirely of recycled fiber is generally lower quality than that made from

virgin pulp. Recycled pulp, therefore, is usually used in combination with wood pulp. However,

for certain products (e.g. containerboard), recent advances in papermaking technology have

tended to offset the effects of recycled fiber, permitting the production of high quality products

from 100-percent recycled fiber.

 

24 “Annual Review,” Pulp & Paper International, Vol. 43, No. 7 (July 2001), p. 9. 

 

25 Integrated paper mills have both pulp and paper manufacturing capacity. Nonintegrated

paper mills lack pulping capacity and purchase wood pulp on the open market.

 

26 “Annual Review,” Pulp & Paper International, Vol. 43, No. 7 (July 2001), pp. 5-74.

 

27 Pulp & Paper, 1999 North American Factbook, p. 184.

7

In addition to the government effort to increase recycling the industry voluntarily established

a goal to re-utilize 50 percent of the Nation’s total stream of waste paper by the year 2000.18

From 1996-99 industry recovery rates19 ranged from 44 to 46 percent,20 but the American

Forest and Paper Association (AF&PA) estimated that in 2000 the recovery rate jumped to

48 percent.21

Preparing waste paper for reuse involves repulping 22 the paper and removing inks, adhesives,

and other contaminants which were introduced during the manufacture or use of the initial

product. (Further explanation of the process is included in Appendix C.) Recycled pulp is used

either alone or mixed with virgin pulp to manufacture paper, paperboard, and other wood fiber

products.23

Industry Structure

The manufacture of wood pulp and the re-use of waste paper are best understood in the

context of the entire pulp and paper industry. In 2000, total global production of wood pulp

was 187 million metric tons, of which the U.S. industry produced 57 million metric tons.24

Table 1 summarizes U.S. production, exports, imports, and consumption for the summary

period.

In 2000, approximately 77 percent of global wood pulp was produced and consumed at

integrated paper mills.25 The remainder, market pulp (approximately 44 million metric tons26),

was produced at dedicated pulp mills or as incremental production at integrated mills. Market

pulp (generally free of duty) is traded globally; large volumes of dried, baled pulp are shipped

from producing to consuming regions.27 The purchasers generally operate nonintegrated paper

mills. Figure 2 summarizes the material flows within the pulp and paper industry.
8

Figure 2

Pulp and paper industry product flow

Table 1

Wood pulp: U.S. production, exports, imports, and apparent consumption 1996-2000

Year Production Exports1Imports1

Apparent

consumption

Ratio of

imports to

consumption

–––––––––––––––– 1,000 of metric tons –––––––––––––––– Percent

1996 258,329 6,636 5,191 56,884 9.1

1997 259,342 6,501 5,855 58,696 10.0

1998 358,226 5,641 5,478 58,063 9.4

1999 457,074 5,579 6,081 57,576 10.6

2000 457,002 6,057 6,588 57,533 11.5

1

 U.S. Department of Commerce.

2 Pulp & Paper International, Vol. 40, No. 7 (July 1998), p. 57.

3 Pulp & Paper International, Vol. 42, No. 7 (July 2000), p. 53.

4

 Pulp & Paper International, Vol. 43, No. 7 (July 2001), p. 45.
 

28 Parthasarathy and Dowe, “Impact of the Cluster Rule...”, Tappi Journal, Vol. 83, No. 9

(Sept. 2000), p. 40.

 

29 Pulp & Paper, 1999 North American Factbook, p. 212.

9

Pulp and paper mills are capital-intensive operations that continue to increase in size and

technical sophistication. The U.S. industry has a debt-to-capital ratio of about 40 percent, and

annual capital spending was approximately 12 percent of sales in 1994.28 Mills are often close

to fiber and water supplies. Larger, newer mills generally manufacture commodity grades on

very large paper machines. Many are vertically integrated, owning or controlling fiber supply,

wood products facilities, and converting facilities. Nonintegrated paper mills produce a variety

of specialty grades generally on smaller, somewhat older machines. As usage of waste paper

has increased, smaller mills that utilize local supplies of waste paper have been built in urban

areas.

With abundant raw materials, a well-developed industry with supporting infrastructure, and

a large, competitive domestic market, the United States accounted for 30 percent (57 million

metric tons) of global pulp production in 2000. Thirty-one States have some capacity to

produce wood pulp. Eighteen States each have over 1 million metric tons of annual production

capacity. Geographically the pulp-producing States may be grouped into four distinct regions:

the South, the Pacific Northwest, the Midwest, and the Northeast. The top-ranked States in

each region are Alabama and Georgia in the South, Washington and Oregon in the Pacific

Northwest, Wisconsin and Michigan in the Midwest, and Maine and Pennsylvania in the

Northeast. By far, most of the Nation’s wood pulp is produced in the South, the broad

expanse stretching from Virginia to Texas. In 2000, the South accounted for 71 percent of

total production capacity (table 2), and 8 of the top 10 pulp-producing states are in the South.

Important indigenous species and a long growing season have encouraged the growth of the

forest products industry in the South. Table B-1 in appendix B summarizes the States included

within each region and shows pulp-manufacturing capacity by State.

Table 2

U.S. annual wood-pulping capacity by region, 2000

Region Total capacity Percent

Million metric

tons

South ................................................... 39.6 71

Pacific Northwest .......................................... 7.5 13

Midwest ................................................. 5.3 9

Northeast ................................................ 3.8 7

Total ................................................ 56.2 100

Source: 2000 Lockwood-Post Directory, (San Francisco, Miller Freeman, Inc. 1999), pp. 37-152 .

Until 1997, pulp manufacturers in the U.S. South had low production costs as compared with

manufacturers in other traditional pulp-producing regions.29 (Table B-2 in appendix B

compares total delivered manufacturing cost for seven traditional pulp-producing regions). In

1997, average delivered manufacturing cost in the U.S. South was $431 per metric ton, thirdlowest behind Finland and Sweden. The competitive position of U.S. manufacturers has been
 

30 Ibid., p. 213.

 

31 U.S. Department of Commerce, Census Bureau, Annual Survey of Manufactures, Industry

Statistics, (Washington, DC: GPO), p. 1-15.

 

32 The last year for which data are currently available is 1999. U.S. Department of Labor,

Bureau of Labor Statistics, data from Industry Productivity database, found at

http://stats.bls.gov/iprdata1.htm, retrieved Aug. 28, 2000 and updated June 21, 2001.

 

33 U.S. Department of Commerce, Census Bureau, 1999 Annual Survey of Manufactures,

Statistics for Industry Groups and Industries, M99(AS)-1, Mar. 5, 2001, p. 10.

 

34 U.S. Department of Labor, BLS, Industry Productivity database.

10

impacted by the strength of the U.S. dollar and the devaluation of the Scandinavian currencies.

Also, traditional producers, both in North America and Scandinavia, are being challenged by

manufacturers in developing pulp-producing regions (e.g., South America, Asia, Iberian

Peninsula). Costs of manufacture in South America may be 40 to 70 percent less than those

for the U.S. South due to less expensive labor and fiber.30

In the 1990s, forest products companies, both foreign and domestic, drove industry

consolidation, further emphasizing the global nature of the industry. Mergers included

acquisition of foreign firms by domestic ones (e.g., Weyerhaeuser’s acquisition of MacMillan

Bloedel) and vice versa (e.g., Smurfit/Stone and Stora/Consolidated). A Finnish company,

UPM-Kymmene, offered to acquire Champion International, but through a subsequent

superior offer, International Paper ultimately acquired Champion. Georgia Pacific also

acquired Fort James, itself a combination of James River Corp. and Fort Howard. The

advantages of global acquisitions include access to new markets, access to new sources of

fiber, and the ability to leverage a company’s technical expertise.

In 1995, U.S. pulp mills employed 14.6 thousand workers in all capacities.31 During 1995-99,

the total of all employees working in U.S. pulp mills declined an average of 13 percent per

year.32 Industry consolidation, forward integration, increasingly efficient pulp mill control

systems, and mill closures each contributed to the decline, and in 1999, U.S. pulp mills

employed only 7.3 thousand workers.33 Reversing the trend from the early 1990s, output per

employee declined by an average of 8.2 percent per year during 1995-99.34

Table 3 shows average hourly earnings for paper and allied products and all industries in the

United States over 1995-99. Hourly earnings for production workers in paper and allied

products were 20 to 24 percent higher than hourly earnings for private industry as a whole.

Average hourly earnings increased by approximately 3 percent annually over the period.

Table 3

Average hourly earnings of production workers, 1995-99

1995 1996 1997 1998 1999

Paper and allied products industry (dollars per hour) ........ 14.23 14.67 15.05 15.50 15.94

Total private industry (dollars per hour) .................. 11.43 11.82 12.28 12.78 13.24

Difference (dollars per hour) ........................... 2.80 2.85 2.77 2.72 2.70

Difference (percent) ................................. 24 24 23 21 20

Paper and allied products (percent change) ............... 3.1 2.6 3.0 2.8

Total private industry (1982 base year) (dollars per hour) ..... 7.39 7.43 7.55 7.75 7.86

Total private industry base change (dollars per hour) ........ 0.5 1.6 2.6 1.4

Sources: U.S. Bureau of Labor Statistics found at http://146.142.424/cgi-bin.
 

35 Roger Grant and John Grant, “Another Year Brings Advances in Biotechnology,” Pulp &

Paper International, Vol. 42, No. 8 (August 2000), p. 29.

 

36 Ibid., p. 30.

 

37 Don McBride, “Unrealistic Thinking Spurred Office Wastepaper De-inking Dilemmas”

Pulp & Paper, Vol. 71, No. 12 (Dec. 1997), p. 70.

 

38 Grant, “Another Year ...” Pulp & Paper International, Vol. 42, No. 8 (Aug. 2000), 

pp. 30-31.

 

39 U.S. Bureau of the Census, Measuring the Productivity Impact of Pollution Abatement,

SB93-13, November 1993, (Washington, DC: GPO), p. 1.

 

40 Ibid., p. 2.

11

Technology

The fundamentals of pulping remain essentially the same, but the industry continues to

increase production speed, improve process control, improve product quality, and reduce

effluent. Appendix E lists and describes various industry technical innovations and process

improvements. In addition to the more conventional refinements, continued research in

biotechnology is contributing to improved raw material. Trees are being genetically modified

to decrease lignin content and increase cellulose content, to increase herbicide tolerance, and

to confer insect resistance.35 Also, enzymes are being developed for applications throughout

the pulp- and paper-manufacturing process. For instance, in the 1990s enzymes were

developed to reduce wood pitch content prior to pulping; others are being developed to

decrease the energy required for mechanical pulping.36

Likewise, technical advances are also being made in the reuse of waste paper. More efficient

methods of cleaning and conditioning recycled fibers are being developed. For example, in the

early 1990s laser printed paper posed a significant challenge, but techniques for recycling

laser printing are now well understood.37 Biotechnology is being used to develop enzymes that

will improve removal of contaminants from de-inked pulp.38 A current challenge is to improve

techniques for removing pressure sensitive adhesives (PSA) of the sort now found on self-stick

postage stamps.

Environmental Considerations

Pulp and paper mills are large, highly visible facilities subject to a high degree of public

scrutiny. Several important environmental regulations (summarized in appendix F) have

required the industry to mitigate air and water effluents. As the understanding of adverse

impacts of effluents has increased, regulations have become increasingly stringent and have

a significant impact on industry cost. A Census Bureau study estimates that pollution

abatement costs for the pulp and paper industry are 2.3 percent of total annual operating

costs, compared to less than 0.5 percent of total annual operating costs for the U.S.

manufacturing sector as a whole.39 The same study estimates that pulp and paper industry

spending of 1 percent of annual operating costs on pollution abatement decreases productivity

more than 5 percent.40 The most recent Current Industrial Report estimates that pollution

abatement expenditures in 1994 were $73 million for U.S. pulp mills and $635 million for the
 

41 U.S. Bureau of the Census, Current Industrial Reports; Pollution Abatement Costs and

Expenditures: 1994, MA200(94)-1, U.S. Government Printing Office, Washington, DC, 1996, 

p. 21.

 

42 Pulp & Paper, 1999 North American Factbook, p. 72, and Jensen, Karl P. and Rae Ann

Rockhill, “Spending restraint continues, focus on environmental compliance projects, Pulp &

Paper, Vol. 75, No. 1 (Jan. 2001), p. 54.

 

43 Parthasarathy and Dowe, “Impact of the Cluster Rule...”, Tappi Journal, Vol. 83, No. 9

(Sept. 2000), p. 40.

 

44 63 FR 18504-18751 (Apr. 15, 1998) and 63 FR 42238-42240 (Aug. 7, 1998).

 

45 Dioxin, which has been detected in the effluent of bleached pulp mills, refers to a family of

toxic chemicals that have similar chemical structures and similar toxic action. Included are some

polychlorinated dibenzo dioxins, polychlorinated dibenzo furans, and polychlorinated biphenyls.

Widely distributed in the environment in low concentrations, they are persistent and

bioaccumulate. Generally, dioxins are characterized as likely human carcinogens. 2,3,7,8 TCDD,

the most studied dioxin, is a known human carcinogen and has caused adverse health effects

when present in animals at about 10 times the average background exposure. Those effects

include changes in hormone systems (endocrine disrupters), reproductive effects, and

immunosuppression. Found at http://www.websorcerer.com/dioxin/d_what.html and retrieved on

May, 8, 2000.

 

46 Pulp & Paper, 1999 North American Factbook, p. 77.

 

47 Parthasarathy and Dowe, “Impact of the Cluster Rule...”, Tappi Journal, Vol. 83, No. 9

(Sept. 2000), p. 43.

 

48 “Recovered Paper Usage Up, Costs May Be On the Rise Too”, Pulp & Paper, Vol. 23, No. 6

(Jan. 1999), pp. 61-65.

 

49 “The Convention and the Kyoto Protocol” found at www.unfccc.int/resource/convkp.html,

retrieved Sept. 13, 2000.

 

50 Brian C. Murray, Stephen P. Prisley, Richard A Birdsey, and R. Neil Sampson, “Carbon

Sinks in the Kyoto Protocol,” Journal of Forestry, Vol. 98, No. 9 (Sept. 2000), p. 6.

12

pulp and paper industry as a whole.41 During the period 1996-98, annual industry

environmental expenditures averaged $629 million (figure B-1) and were estimated to be

approximately $700 million during 1999-2000.42 Individual company expenditures vary

widely since capital spending is tied to cash flow.43

In April 1998, a major environmental regulation, the Cluster Rule, went into effect.44

Resulting from a court-imposed consent agreement that required the U.S. Environmental

Protection Agency (EPA) to enact rules controlling dioxin and furan,45 the Cluster Rule is the

first EPA attempt to integrate the control of air and water emissions from pulp and paper

mills. Estimates of the cost of compliance for the U.S. industry include over $3.0 billion in

capital spending46 and increased annual operating expense of $273 million or $8.83 per ton.47

Rather than making the necessary expenditures, some mills chose instead to idle their pulping

operations and switch to the use of recycled fiber.48

International environmental concern has been manifest through the Kyoto Protocol to the

United Nations Framework Convention on Climate Change, which was adopted on December

11, 1997.49 Under the protocol, developed countries agreed to meet emission targets for

greenhouse gases (CO2) beginning in 2008. Should the protocol be ratified, net reduction

targets might be met either by reducing emissions or enhancing absorption in terrestrial

ecosystems.50 The fact that vigorous tree plantations act as carbon sinks may actually induce

increased silvicultural investments as countries work to meet CO2 emissions targets, and such

investments would likely enhance the availability of wood fiber.
 

51 AF&PA, 2000 Statistics, p. 35.

 

52 Pulp & Paper, 1999 North American Factbook, p. 188.

13

Figure 3

Wood pulp categories

WOOD PULP MARKETS

Grades of Wood Pulp

Paper-grade pulp is classified by geographic region, brightness, fiber type, and pulping

method (figure 3). Both softwood (conifers) and hardwood (broad-leaved) trees are important

sources of fiber. The longer fibers of softwoods provide strength; the shorter fibers of

hardwoods provide smoothness and opacity. For many products, manufacturers use both

softwood and hardwood pulp in proportion depending on the type of paper being produced.

Domestic, kraft pulping capacity for bleached and semibleached pulps is roughly split in half

between hardwood (54 percent) and softwood (46 percent).51 The highest quality pulps are

softwood, kraft pulps from northern regions (northern bleached softwood kraft or NBSK).

Following NBSK on the quality spectrum are northern hardwood pulps, southern softwood

pulps, and finally, southern hardwood pulps. Chemical pulp dominates the global market for

wood pulp; only about 7 percent is mechanical pulp, principally bleached

chemithermomechanical pulp (BCTMP).52 Currently the U.S. industry does not have any

mechanical market pulp capacity.
 

53 AF&PA, 2000 Statistics, p. 35.

 

54 Ibid.

 

55 Robert L. Santos, “The Eucalyptus of California,” found at

http://www.library.csustan.edu/bsantos/section1.htm, retrieved June 19, 2000.

 

56 Pulp & Paper, 1999 North American Factbook, p. 180.

 

57 “Fluff Pulp Market Steady; End-user Consolidations Increase Pricing Pressure,” Pulp &

Paper Week, Feb. 23, 1998.

 

58 “Emerging Markets Driving Strong Fluff Pulp Demand; Producers Reaching Pricing

Parity,” Pulp & Paper Week, Aug. 28, 1995. 

 

59 Pulp & Paper, 1999 North American Factbook, p. 223.

14

In addition to the regular grades of market pulp there are four special grades; dissolving,

eucalyptus, fluff, and market de-inked pulp (MDIP). Dissolving pulp, highly purified (95-99

percent cellulose) pulp, is used for chemically converted products such as rayon, cellophane,

acetate, plastics, and chemicals. In 2000 U.S. dissolving pulp capacity was approximately 1.1

million metric tons and accounted for 12 percent of total domestic market pulp capacity.53

From 1996-2000, U.S. dissolving pulp capacity dropped 307,000 metric tons.54 Despite tough

competition from overseas and synthetic fibers, some dissolving pulp products perform well

in the market place. The trend is towards more specialized grades of dissolving pulp. The

price of dissolving pulp is not as volatile as that of paper-grade pulp.

The genus, Eucalyptus, contains over 600 species of evergreen plants that range in size from

shrubs to large trees, many of which are native to Australia.55 Eucalyptus is easily and

efficiently pulped; its very fine, uniform fibers provide superior opacity for printing and

writing grades and superior softness for tissue grades. Over the past two decades, shipments

of bleached eucalyptus kraft (BEK) pulp have expanded rapidly, increasing on average by 12

percent annually.56 Although eucalyptus requires a mild climate, it is capable of rapid growth.

Plantations have been established in South America, the Iberian Peninsula, and South Africa.

Eucalyptus not only provides market pulp to meet the demand of the global industry but also

provides a fiber base for expanding paper industries in producing regions. Unlike other

hardwood fibers grown in southern regions, it is a premium product and commands a price

similar to the very best NBHK.

Fluff pulp is used to make sanitary disposable products such as diapers, feminine napkins, and

adult incontinence products. Total world production of fluff pulp (approximately 3.2 million

metric tons) was generally flat over the summary period.57 Five major U.S. manufacturers

account for about two thirds of global production.58 Fluff pulp is shipped in rolls to

manufacturers of sanitary disposable products. It is more costly to produce than paper-grade

pulp because tighter moisture and cleanliness control is required and because packing,

handling, and transportation costs are higher. In 1989 the market for disposable diapers

accounted for 81 percent of total fluff pulp demand, but by 1997 diapers and toddler training

pants accounted for only 60 percent of the total. Adult incontinence products (20 percent),

feminine napkins (10 percent) and nonwoven products (10 percent) accounted for the balance

of demand.59 The decrease attributable to the diaper market amounted to a drop in demand of

over 1 million metric tons. Two factors contributed to the decline. First, the North American

diaper market (approximately 25 percent of total world demand) and other large diaper

markets in Western Europe and Japan are mature. Second, subsequent to the advent of superabsorbent polymers (SAPs) in the 1980s, disposable diapers were redesigned to use 55 to 60
 

60 Ibid., p. 226.

 

61 David Pineault, “Will De-inked Market Pulp Cause Traditional Pulp to Dip,” Pulp & Paper

International, Vol. 38, No. 11 (Nov. 1996), p. 41.

 

62 Pulp & Paper, 1999 North American Factbook, p. 216.

 

63 Ibid.

 

64 AF&PA, 1999 Statistics, p. 34.

 

65 Pineault, “Will De-inked Market Pulp Cause Traditional Pulp to Dip,” p. 41.

 

66 Pulp & Paper, 1999 North American Factbook, p. 216.

 

67 Ibid.

 

68 AF&PA, 1999 Statistics, p. 35.

15

percent less fluff pulp. In the new diapers, fluff pulp serves not as an absorbent medium but

as a transport medium that wicks moisture to SAPs. Not only do the new diapers contain less

fluff pulp; they stay on babies longer, so usage in the 1990s dropped from 5.5 to 4.5 diapers

per day per baby.60

Use of de-inked pulp was once limited to newsprint and tissue,61 but technical improvements

have allowed de-inked pulp to be used in printing and writing grades as well. The market

expanded rapidly as manufacturers sought to include recycled fiber in their furnish. Before

1990, there were only five MDIP mills in the United States.62 By 1994, following a wave of

investment (either for new mills or reconfigured existing mills), 14 mills63 with over 700,000

metric tons of total annual capacity were producing MDIP.64 As a raw material, MDIP

performs in roughly the same fashion as southern bleached hardwood kraft (SBHK), but in

spite of that, robust demand for recycled pulp in the early 1990s allowed MDIP to sell at a

premium over SBHK (figure 4). In 1993 with the pulp price at an ebb, the premium peaked

at approximately 75 percent.65 Subsequently, increasing pulp prices, performance problems,

producer demand swings, and new capacity eliminated the premium by the end of 1995. The

price of MDIP collapsed in 1996. By 1997, some 21 mills66 were producing MDIP. The

expanded demand for waste paper strained supply and resulted in higher prices. Profitability

dropped with higher fiber cost and lower MDIP prices. By 1998, three greenfield mills and

one older mill had been idled.67 Annual capacity reached approximately 1.8 million metric tons

in 1998 and is estimated to have remained flat in 1999 and 2000.68 MDIP prices are now on

par with SBHK. Compared with other paper producers, de-inked mills suffer from higher

relative fiber and production costs.
16

Figure 4

U.S. domestic price, market de-inked pulp vs. southern bleached hardwood kraft, 1994-2000

Wood Pulp Supply and Demand

Demand for wood pulp is a function of the consumption of paper and paperboard, which

follows economic activity. Demand for bleached market pulp is specifically derived from the

demand for printing and writing paper. Over the last 20 years, domestic demand has increased

at an average annual rate of 1.7 percent. Despite long-term growth, short-term demand is

subject to cyclical fluctuations.

Market pulp is produced at dedicated pulp mills or as incremental production at integrated

mills. Annual production during 1996-2000 was erratic but was estimated to be 7.8 million

metric tons in 2000, 3.5 percent higher than in 1996 (table 4). Wood pulp is marketed globally

through a variety of outlets. Purchasers are either nonintegrated paper mills or integrated mills

that must supplement their fiber supply. Large volumes are often sold under long-term

contract, but an active spot market exists also. Brokers are utilized especially to
17

facilitate export sales. Dried, baled pulp is shipped in bulk. The choice of transport mode (rail,

truck, or ship) or combination of modes depends on rates, service requirements, and

capabilities.

Table 4

Market pulp: U.S. production, exports, imports, and apparent consumption, 1996-2000

Year Production Exports1Imports1

Apparent

consumption

–––––––––––––––––––––– 1,000 of metric tons –––––––––––––––––––––––––

1996 ....................

27,493 6,636 5,191 6,048

1997 ....................

37,775 6,501 5,855 7,129

1998 ....................

37,304 5,641 5,478 7,141

1999 ....................

47,431 5,579 6,081 7,993

2000 ....................

47,758 6,057 6,588 8,289

––––––––––––––––––––––––– Million dollars –––––––––––––––––––––––––––

1996 .................... 3,844 3,289 2,593 3,148

1997 .................... 4,051 3,118 2,562 3,495

1998 .................... 3,608 2,682 2,383 3,309

1999 .................... 3,716 2,702 2,537 3,551

2000 .................... 5,144 3,415 3,290 5,019

1

 U.S. Department of Commerce.

2 Pulp & Paper International, Vol. 40, No. 7 (July 1998), p. 57.

3 Pulp & Paper International, Vol. 41, No. 7 (July 1999), p. 43.

4 Pulp & Paper International, Vol. 43, No. 7 (July 2000), p. 45.

Table 5 summarizes annual market pulp production by grade. High quality and strength make

kraft pulp the predominate grade; in 1999 bleached, kraft pulps composed 94 percent of all

paper grade shipments.

The largest domestic producers of market pulp are multinational companies (table 6). The top

10 domestic producers have an annual capacity of 7.4 million metric tons or 85 percent of

total U.S. capacity. In 2000, 68 facilities in the United States produced market pulp; 33 were

dedicated pulp mills and 35 were integrated facilities. The total number of U.S. facilities

producing market pulp peaked in 1996 at 73. U.S. capacity, 9.7 million metric tons

Table 5

Market pulp: U.S. production by grade, 1995-99

1995 1996 1997 1998 1999

–––––––––––––––– 1,000 of metric tons ––––––––––––––––––––

Bleached sulfite ................... 193 142 138 78 98

Sulfate (kraft):

- Bleached or semi-bleached ....... 7,742 7,125 7,500 6,985 7,173

- Unbleached ................... 230 313 338 290 339

Total ..................... 8,165 7,580 7,976 7,353 7,610

Note.—Figures do not include dissolving pulp. The grade-specific pulp production figures as reported by

AF&PA and shown in this table differ slightly from those reported by Pulp & Paper International shown in table

4 and elsewhere in this report. They are shown here only to illustrate the predominance of kraft market pulp.

Source: American Forest & Paper Association, Statistics 2000, (Oct. 2000), p. 58.
 

69 AF&PA, 2000 Statistics, p. 35. 

 

70 Rhiannon James, “Come Join the Pulp Party,” Pulp & Paper International, Vol. 42 No. 5

(May 2000), p. 43.

 

71 Ibid., p. 44.

18

in 1996, contracted at a rate of 2.2 percent annually to 8.7 million metric tons in 2000.69 Mill

closures have been driven by global financial crises, tightened environmental regulations, and

poor profitability.70 U.S. capacity is expected to grow very slowly; currently no new mills are

planned in the United States. All currently planned capacity is to be built offshore.71

Table 6

U.S. producers of market pulp by annual capacity, 1998

Company Capacity

1,000 metric tons

Georgia-Pacific Corp. ........................................................ 1,870

International Paper Co. ....................................................... 1,400

Weyerhaeuser Co. ........................................................... 1,270

Parsons and Whittemore Inc. ................................................... 840

Smurfit-Stone Corp. .......................................................... 505

Bowater Inc. ............................................................... 400

Rayonier Inc. ............................................................... 355

Buckeye Technologies Inc. .................................................... 275

Alliance Forest Products Inc. ................................................... 270

Kimberly Clark Corp ......................................................... 220

Source: Pulp & Paper, 1999 North American Factbook., (San Francisco, Miller Freeman, Inc., 1998), p. 204.

Wood Pulp Pricing

The price of market pulp is highly volatile. Because demand tends to track economic activity,

prices rise and fall as the economy expands or contracts. In addition, the relative inelastic

nature of pulp supply magnifies price volatility in both weak and strong markets. During weak

markets, the capital-intensive nature of pulp-manufacturing tends to encourage producers to

maintain full production in spite of soft demand. On the other hand, lengthy lead time for new

mill construction tends to constrain supply; in the short-term, capacity is essentially fixed.

Therefore, strong demand can induce large price increases before new supply is available.

Further, when a period of strong demand induces more than one company to add capacity, an

extended period of oversupply may result in very soft market prices. Other factors such as

changing inventories or exchange rate fluctuations also exacerbate pulp pricing cycles.
 

72 As the preferred pulp, NBSK serves as the benchmark of pulp pricing. Prices of other

grades are determined as discounts from the price of NBSK.

 

73 Derivatives (futures) markets for wood pulp have been established in Europe, but as yet,

they have not decreased the volatility of market pulp prices. Douglas A. Fromson, “Market Pulp

Volatility Still Likely Despite Efforts to Stabilize Market,” Pulp & Paper, Vol. 71, No. 3 (Mar.

1997), p. 101.

 

74 Martin Bayliss, “Grade Review - Market Pulp” International Papermaker, Vol. 58, No. 2.

(Feb. 1995), p. 13.

 

75 Fromson, “Market Pulp Volatility ...,” Pulp & Paper, Vol. 71, No. 3 (Mar. 1997), p. 101.

 

76 Industry associations for pulp producing countries track inventory for the combined North

American and Scandinavian (“Norscan”) industries, the traditional producers of wood pulp. The

Norscan inventory was 1.0 million metric tons at the end of June 1995, but ballooned to 2.6

million metric tons at the peak in March 1996. Pulp & Paper, 1999 North American Factbook, 

p. 185. 

 

77 Pulp & Paper, 1999 North American Factbook, p. 99.

 

78 In 1998 the Norscan inventory peaked in August at 1.9 million metric tons of wood pulp. 

 

79 Gary Thomson, “Pulp: Set for Another Wild Ride,” Pima’s International Papermaker, Vol.

82, No. 2 (Feb. 2000), p. 25.

 

80 Likely, increased consumption has shifted the “balanced market” producer inventory even

higher.

 

81 Fraser Evans, “Market Pulp: Long Anticipated Market Pulp Upswing Could Last for as

Long as Two More Years,” Pulp & Paper, Vol. 74, No. 1 (Jan. 2000), p.39.

 

82 Although the price of wood pulp recovered in 2000, the Norscan inventory exceeded 1.5

million metric tons by the end of October and was 1.8 million metric tons at the end of the

summary period.

19

Figure 5 charts the historic price of NBSK72 in the domestic market. Data from 1980 are

shown to place the prices observed during 1996-2000 within the context of the wide price

swings of the past two decades.73 The economic surge of the late 1980s fueled capacity

expansion, but the recession of the early 1990s brought prices below $500 per metric ton by

the third quarter of 1993. At that point less than 10 percent of market pulp producers was

earning profits.74 The bottom was followed in 1994 by the largest price increase on record75

a rise well beyond that which could be passed on to paper buyers. Beginning in June 1995,

inventory rose rapidly76 as customers purchased in anticipation of further price increases.

Manufacturers made large profits in 1995, but during the summer the demand for freesheet

papers in Europe fell more than usual. The market peaked in October as customers cut off

orders and began to liquidate inventories. Prices plunged through most of 1996, but rallied in

1997, with North American production capping the “most volatile business cycle in history.”77

The large drop at the beginning of 1998 coincided with the Asian financial crisis. With soft

Asian demand, inventory rose78 and the price of NBSK fell to $460 per metric ton in the

fourth quarter of 1998.79 As mentioned earlier, U.S. market pulp capacity began to contract

during 1996-2000 as mills were closed (either temporarily or permanently) or as forward

integration removed pulp from the market. Paper consumption was strong in 1999. By

October producer inventories had dropped to 1.1 million metric tons, well below the

“balanced” market inventory level of 1.5 million metric tons.80 Downtime, mill closures, and

limited new capacity helped solidify the market. Early in 2000 the price of NBSK reached

$650 per metric ton81 and later $710 per metric ton, where it remained for the rest of the

year.82
 

83 Institute of Scrap Recycling Industries, Inc., Scrap Specifications Circular 198 - Guidelines

for Nonferrous Scrap, Ferrous Scrap, Glass Cullet, Paper Stock, Plastic Scrap (Washington,

DC: ISRI, 1998)

 

84 Pulp & Paper, 1999 North American Factbook, p. 242.

20

Figure 5

U.S. price, northern bleached softwood kraft 1980-20001, 2

WASTE PAPER MARKETS

Grades of Waste Paper

The Institute of Scrap Recycling Industries (ISRI) establishes specifications for different

grades of waste paper.83 Currently, 47 different regular grades of waste paper and 32 specialty

grades are recognized. A list of these grades is shown in appendix C. Both regular and

specialty grades are produced and shipped in carload or truckload quantities throughout the

United States. Specialty grades have certain characteristics (e.g., chemical treatment,

coatings) that require consuming mills to have special equipment in order to utilize them. The

U.S. Department of Commerce includes each grade within one of five broad, benchmark

categories; corrugated, newspapers, mixed papers, pulp substitutes, and de-inking.84 Some

grades (e.g., newspapers and corrugated) are relatively easy to collect and utilize; therefore,

they are widely recycled, and their recovery rates are very high. Collection is more difficult

for other grades (e.g., mixed papers), a fact reflected in lower utilization rates.
 

85 Harold M. Cody, “Recovered Paper Usage Up, Costs May Be On the Rise Too,” Pulp &

Paper, Vol. 73, No. 6 (June 1999), p. 61.

 

86 Debra A. Garcia, “Wastepaper Prices Soar to New Records,” Pulp & Paper, Vol. 69, No. 2

(Feb. 1995), p. 69.

21

Corrugated is the largest source of waste paper. Included in this category are old corrugated

containers (OCC), solid fiber boxes, container plant clippings, kraft paper and bags, bag

clippings, carrier stock, and carrier stock clippings. In 1999, 20.7 million metric tons were

recovered accounting for 48 percent of all recoveries in the United States (table 7). Corrugated

is primarily collected from retail establishments, factories, and office buildings. The

corrugated recovery rate increased steadily during 1995-99 and was estimated to be 80

percent in 200085 as new, nontraditional sources (e.g small retail establishments and offices,

restaurants, and residences) have developed.

Newspapers are the next largest source of waste paper. The category includes old newspapers

(ONP), special news, white blank news, groundwood computer printout, publication blanks,

mixed groundwood and flyleaf shavings, and coated ground wood sections. In 1999,

approximately 8.2 million metric tons (19 percent of the total) were recovered in the United

States. Newspapers are collected principally through municipal collections.

Mixed papers are collected from office buildings (generally unsorted) by private haulers.

Mixed papers include office papers (if not suitable for de-inking or pulp substitutes),

magazines and catalogs, telephone directories, recycled boxboard cuttings, recycled tissue

paper converting scrap, mill wrappers, and specialty grades. In 1999 recovery of mixed

papers was about 7.7 million metric tons (18 percent of the total). Traditionally, lower quality

mixed paper has been used for construction paper and paperboard (e.g., roofing felts and

gypsum wallboard liner). It is the only largely untapped source of U.S. wastepaper

remaining.86

Table 7

Waste paper: U.S. recovery by grade, 1995-99

1995 1996 1997 1998 1999

––––––––––––––––– 1,000 metric tons –––––––––––––––––

Corrugated .......................... 18,513 19,576 19,978 20,060 20,686

Newspaper .......................... 7,066 7,074 7,559 7,863 8,185

Mixed papers ......................... 6,099 6,145 5,983 6,744 7,659

Pulp substitutes. ...................... 2,936 2,736 2,928 2,560 2,600

High grade ........................... 3,660 3,546 3,462 3,670 3,792

Total ............................ 38,274 39,079 39,910 40,897 42,921

Note.—Total recoveries by grade as reported by A.F. & P.A. are slightly different than the figures for total

collections as reported by PPI in table 8.

Source: American Forest & Paper Association, Statistics 2000, (Oct. 2000), p. 57.
 

87 “Annual Review,” Pulp & Paper International, Vol. 43, No. 7, (July 2001), p. 9.

 

88 Pulp & Paper, 1999 North American Factbook, p. 234.

 

89 AF&PA, Paper, Paperboard, & Wood Pulp, Vol. 79, No.2 (Feb. 2001), p. 1. “U.S. paper

industry closing in on 50 percent recycling goal,” found at www.paperloop.com, retrieved June

27, 2001. The domestic industry fell just short of it’s goal because paper consumption generally

expanded faster than recoveries, the cost difference between recovered and virgin fiber is now too

low to drive further recycling investment, and other non-paper uses for recycled fiber (e.g.,

compost) have not materialized. Kirk Finchem, “Recovered Paper Collection Grows, but

50 percent Goal Remains Unlikely,” Pulp & Paper, Vol. 72, No. 5 (May 1998), p. 85.

22

High-grade de-inking (3.8 million metric tons in 1999) and pulp substitutes (2.6 million metric

tons in 1999) are the high grades of waste paper. Print free grades are reported as pulp

substitutes, and printed grades as high-grade de-inking. The traditional sources for the high

grades are large office buildings with private haulers picking up sorted material. This material

includes bleached chemical grade office papers and computer printout, bleached sulfite and

sulfate cuttings, chemical tissue paper converting scrap, and coated book stock.

Waste Paper Supply and Demand

A country’s total supply of waste paper depends on its consumption of paper and paperboard

products. In 2000, the United States consumed the most paper and paperboard (92.3 million

metric tons) in the world, and per capita U.S. consumption ranked third in the world at 332

kilograms.87 In addition to the EPA goal to reduce MSW and the industry’s voluntary paper

recycling goal, by 1992, 39 states had “supply-side” recycling laws that required separation

or other provisions (e.g., landfill bans) intended to stimulate recycling.88 The sharp increase

in the recovery which began in the 1980s (figure 1) continued during 1996-2000.

In 2000, total recoveries of waste paper reached 44.9 million metric tons (table 8), and

AF&PA estimated that the recovery rate was 48 percent.89 During 1995-99 the annual

recoveries of all grades except pulp substitutes increased. Corrugated registered the largest

absolute annual gain, but mixed papers recorded the highest annual percentage increase and

the second largest absolute increase.

There are several types of waste paper suppliers. Involuntary generators include supermarkets

and large commercial, retail, or industrial facilities. Solid waste management companies

handle mostly bulk grades (corrugated and newspaper) that are recovered from the waste

stream. Packers and processors sort and bale waste paper, and brokers facilitate long distance

purchases, trades, or exports. Prior to the early 1990s when many municipalities began public

curbside collections, private recyclers formed the core of the industry. In spite of public

collections, private recyclers have remained in business, and in fact, some municipalities have

contracted their collection programs to private firms.
 

90 Bill Moore, “Recovered Paper Purchasing: No Longer a Sideline,” Pima’s North American

Papermaker, Vol. 80, No. 3 (March 1998), p. 26.

 

91 Pulp & Paper, 1999 North American Factbook, p. 250.

 

92 Ibid., p. 251.

23

Table 8

Waste paper: Estimated U.S. collections, exports, imports, and apparent consumption, 1996-

2000

Collections Exports1Imports1

Apparent

consumption

Ratio of

imports to

consumption

–––––––––––––––––––– 1,000 metric tons –––––––––––––––– Percent

1996 .....................

238,430 6,495 430 32,365 1.3

1997 .....................

240,909 6,809 628 34,729 1.9

1998 .....................

340,892 7,349 464 34,007 1.4

1999 .....................

442,915 7,517 387 35,785 1.1

2000 .....................

444,938 9,896 552 35,594 1.6

––––––––––––––––––––– Million dollars –––––––––––––––––––

1996 .....................

52,565 745 55 1,875

1997 ..................... 3,294 747 77 2,624

1998 ..................... 2,800 753 60 2,107

1999 ..................... 3,363 822 60 2,602

2000 ..................... 4,765 1,183 91 3,673

1

 U.S. Department of Commerce.

2 Pulp & Paper International, Vol. 40, No. 7 (July 1998), p. 57.

3 Pulp & Paper International, Vol. 42, No. 7 (July 2000), p. 53.

4 Pulp & Paper International, Vol. 43, No. 7 (July 2001), p. 45.

5

 Values of waste paper collections were estimated from unit values compiled and reported weekly by Official

Board Markets.

Paper companies pursue a variety of waste paper supply strategies including long term

contracts, joint ventures, and direct investment. Higher recovery levels may push

purchasing agreements towards more formal, long term (greater than 2 years)

contracts.90 However, many supplier/purchaser relationships are based on informal

agreements, and long term relationships are important. Often, smaller, urban paperboard mills

or recycling centers rely heavily on spot purchases while mills that are located a greater

distance from supply use longer term, formal supply contracts. Some companies struck long

term supply agreements with paper stock dealers and brokers. For example, Stone Container

Company and Waste Management Inc. (WMI) formed Paper Recycling International (PRI)

through a joint venture in the early 1990s. PRI brokered the paper that WMI collected,

supplying a large portion of it to Stone. Weyerhaeuser Company established their own waste

paper processing plants and in the early 1990s signed a supply agreement with BrowningFerris Industries (BFI), the nation’s second-largest waste hauler.91 Other paper companies,

(e.g., Jefferson Smurfit Corp.) operate their own recycled fiber procurement divisions. After

a wave of consolidation in the early 1990s, volatile markets or heavy debt caused some

companies to retrench in the late 1990s. Some waste haulers (e.g., BFI and WMI) sold

processing plants or reduced recovery efforts, and Weyerhaeuser sold 8 of its 41 processing

facilities.92
 

93 Tom W. Woodward, “Recycled Fiber Types, Processing History Affect Pulp Behavior

During Papermaking,” Pulp & Paper, Vol. 70, No. 8 (Aug. 1996), p. 81.

 

94 Stickies are small residual particles of pressure sensitive adhesives, glues, or other gummy

substances.

 

95 Kirk Finchem, “Capacity Imbalance, Technical Issues Still Plague De-inked Pulp,” Pulp &

Paper, Vol. 72, No. 8 (Aug. 1998), p. 59, and Kirk J. Finchem, “Inferior Fiber Equipment Limits

Challenge Older Recycled Mills,” Pulp & Paper, Vol. 70, No. 6 (June 1996), p. 49.

 

96 Interview with Weyerhaeuser Co. personnel, Baltimore, MD, Oct. 3, 2000.

 

97 Ibid.

 

98 William P. Moore, “ Hot Commodity,” American Papermaker, Vol. 58, No. 4 (Apr. 1995),

p. 45.

24

Service is important to many waste paper generators that have limited space in which to

collect outbound scrap paper. Often, waste paper purchasers leave their own semitrailers at

the loading dock of the generator to allow loading waste paper directly onto the truck as it is

generated. Alternatively, purchasers may agree to provide frequent, scheduled truck pickups

for out-going waste paper.

As recovery rates rise, collection cost and fiber quality become more important issues.

Recovery rates for bulk grades, which are easily collected and utilized, are high. However, the

other grades are harder to recover; sources are not as well defined, or grades require

separation. Inherently, mixed papers are not uniform and typically contain groundwood and

chemical papers, coated and uncoated papers, and colored papers.93 If price differentials

warrant, collectors pick out premium material (e.g., white ledger) to sell separately and sell

the remaining fiber as mixed waste. However, collectors do not remove contaminants, so mills

utilizing mixed grades must contend with increased stickies,94 increased brown fiber, increased

contaminants, and shorter fiber lengths. Some de-inked pulp mills were designed to run clean,

uniform grades of waste paper and cannot run a mixed waste stream and maintain product

quality.95 Mills able to utilize lower quality fiber while maintaining product quality have a

competitive advantage, because additional sorting may cost $65 to $90 per metric ton.96

Sorting recycled paper is largely a manual process with attendant safety, quality, and cost

issues. However, Weyerhaeuser and a manufacturer of sorting equipment for recycled plastics

have developed an automatic paper sorting system. Using optical, infrared, and gloss sensors,

the sorter is capable of producing a white ledger grade that is over 90 percent pure. The cost

savings depend upon the difference between the cost for unsorted office waste paper and the

price for recovered high grades and other residuals. Compared with manual sorting, the

system offers large quantitative gains as the automatic sorter operates at speeds more than ten

times as fast.97

The demand for waste paper, like wood pulp, is driven by demand for paper and paperboard

products. Until the 1980s, demand was confined to small, regional markets,98 and consumption

was limited to mills that produced recycled tissue, paperboard, or industrial paper products.

However, the growing numbers of mills that use waste paper and increasing prices have

eliminated regionalism and diminished the relative importance of transportation cost. Often,

consuming mills lower freight with backhauls or trading arrangements. It is no longer unusual

for waste paper to be shipped great distances. By 1995 the United States had just two distinct

waste paper markets, east and west.
 

99 Minimills are small, technologically advanced, generally urban recycled paper mills. They

produce moderate tonnage from a single fiber line feeding an uncomplicated but state-of-the-art

paper machine incorporated in a low operating cost, minimum capital plant. Charles E. Swain,

“Special Report - Industry Trend or Passing Fad,” International Papermaker, Vol. 58, No. 2.

(Feb. 1995), p. 39.

 

100 Estimated by USITC staff.

 

101 Domtar’s Cornwall, Ontario mill manufactures fine paper entirely from OCC. Once

repulped, recycled fibers are actually cooked to remove residual lignin before bleaching. Caroline

Cagampan-Stoute, “Crystal Clear,” International Papermaker, Vol. 58, No. 2 (Feb. 1995), p. 30.

25

Regulatory requirements to use recycled material have contributed to new demand. By the

early 1990s, 13 States and Washington, DC, required newsprint manufacturers to use recycled

material, and 13 additional States established voluntary targets. Other regulations mandated

recycled content for all paper purchased by state and federal governments. Additional factors

began to encourage the rapid growth in the use of recovered paper. Advances in papermaking

technology solved some of the problems associated with the use of recycled fibers. High

regional costs for virgin wood pulp increased the relative competitiveness of recycled paper

mills. Construction projects for minimills99 to produce recycled containerboard or tissue

enjoyed easier permitting, lower capital costs, and smaller incremental capacity than virgin

fiber projects. By 2000 approximately 240 mills in the United States used some recycled fiber;

over 60 percent of those mills were 100 percent recycled fiber operations.100

Domestic consumption of corrugated grew from 15.0 million metric tons in 1995 to 18.7

million metric tons in 1999. (Table B-4 in appendix B charts consumption by grade during

1995-99.) This increase was the highest average annual rate of increase (4.5 percent) and the

largest absolute growth (3.7 million metric tons) of any grade during the summary period. In

1999 domestic consumption of corrugated was 53 percent of the total. Consuming mills

typically use corrugated waste paper to manufacture paperboard, containerboard, or other

packaging papers. However, at least one North American mill has developed a technique to

use corrugated to manufacture fine paper.101 Mills that use both wood pulp and waste paper

can adjust recycled usage as grade mix, prices, or market conditions require.

During 1995-99, domestic consumption of newspaper increased on average by 3 percent

annually growing from 5.4 million metric tons to 6.4 million metric tons. Most newspaper is

consumed by paper mills to manufacture newsprint, tissue, and paperboard, but it can also

be used to manufacture molded pulp products (e.g., egg cartons). During 1995-99

consumption of newspaper for this end use grew 8 percent annually, and reached 1.4 million

metric tons by 1999.

During 1995-99, domestic consumption of mixed papers grew by an average of 4.5 percent

annually from 4.4 to 5.5 million metric tons. As with old newspaper, most mixed papers were

consumed in paper mills, but some were also consumed in the manufacture of molded pulp

products. Consuming mills are still learning to cope with contaminants, but some have the

flexibility to use mixed paper for up to 30 percent of their furnish. Supply interruptions are

another problem; during periods of reduced demand or low prices, collections stop. Higher

prices for waste paper encourage mills to substitute less expensive mixed papers when

possible, but low prices for hardwood pulp diminish this incentive. Finally, demand for one

end use, roofing papers, has decreased as the use of fiberglass in roofing shingles has

increased. In spite of these obstacles, total domestic consumption of mixed papers increased
 

102 The estimated manufacturing cost of a typical stand-alone facility is $100 to $150 per ton

more than that for facilities adjacent to paper mills. Kirk Finchem, “Recovered Paper Collection

Grows, but 50 percent Goal Remains Unlikely,” Pulp & Paper, Vol. 72, No. 5 (May 1998), p. 85.

 

103 “Capacity Imbalance, Technical Issues Still Plague De-inked Pulp” Pulp & Paper, Aug.

1998.

 

104 New production capacity included both incremental capacity at existing mills and capacity

from newly constructed mills.

 

105 William P. Moore, "Volatile Market for Recovered Paper Makes Mill Use Predictions

Difficult," Pulp & Paper, Vol. 70, No. 9 (Sept. 1996), p. 89.

26

by 1.1 million metric tons, the second-largest increase in absolute terms during the summary

period.

Domestic consumption of high-grade de-inking and pulp substitutes was relatively flat during

1995-99. Consumption of high-grade de-inking increased from 2.7 million metric tons in 1995

to 2.9 million metric tons in 1999 (1 percent per year). Usage of pulp substitutes actually

dropped slightly from 2.2 million metric tons in 1995 to 2.1 million metric tons in 1999. The

price of MDIP peaked in 1995 at $955 per metric ton (figure 4) but subsequently plummeted

to $425 per metric ton by 1997. The crash prevented all efforts to expand usage. De-inked

pulp mills are no longer economically practical; the cost of manufacture for de-inked pulp now

far exceeds that for virgin fiber pulp. Even facilities adjacent to paper mills, which enjoy

considerable cost synergies, are not able to match the cost of virgin pulp.102 Given that

printing and writing papers containing recycled pulp generally sell for a lower price,103 there

is little incentive at present to expand usage of the high grades. However, as pulp markets

improve, so too should the markets for high grades.

Waste Paper Pricing

Waste paper is generally sold F.O.B. at the seller’s dock. Controlling the freight for inbound

recycled fiber allows mills to take advantage of any backhaul opportunities that arise in

conjunction with outbound freight from the mill. Figure 6 illustrates the very steep increase

in prices which began in 1994. Excess supply, a slumping economy, and flat export demand

restrained prices early in the decade, but in 1994 export and domestic demand recovered

simultaneously. Low inventories and new production capacity104 increased demand, but supply

did not expand right away. The lagged supply response contributed to the large price increase

during 1994-95. However, prices fell as quickly as they had risen, once supply expanded.

Increasing waste paper recoveries and low linerboard prices resulted in relatively stable prices

in the early 1990s. However, beginning in 1994, several coincident factors--a seasonal

(summer) slowdown in recovery, increased export demand, decreased inventories, and

increased demand from new recycled capacity--resulted in a significant price increase. Starting

from $18 per metric ton in January 1994, OCC prices rose to $110 by July, before settling

to $80 in November. In 1995, OCC prices reached $200 per metric ton in July before

declining to $25 in December of that year.105 Mills reacted to higher prices by increasing

inventories and substituting cheaper grades.
27

Figure 6

Midwestern waste paper prices (dollars per metric ton, f.o.b. seller’s dock), 1993-20001, 2

U.S. IMPORTS

Wood Pulp

U.S. imports of wood pulp in 2000 were 6.6 million metric tons, an increase of 27 percent

over the 1996 level (table 9). The value of wood pulp imports increased from $2.6 billion in

1996 to $3.3 billion in 2000. Imports accounted for 11.5 percent by weight of apparent

consumption in 2000, up from 9.1 percent in 1996. All imports of wood pulp into the United

States enter free of duty. U.S. imports of wood pulp come principally from two countries,

Canada and Brazil. During each year of the period, imports from Canada accounted for more

than 80 percent by weight of all U.S. imports. Proximity to the U.S. market, significant forest

resources, and a large forest products industry all contributed to Canada’s ability to supply

the U.S. market. Most of the remaining balance is supplied by Brazil. In 2000, Canada and
28

Brazil accounted for 97 percent by weight of all U.S. wood pulp imports. During 1996-2000,

Canada’s share declined slightly from 84 to 81 percent, and Brazil’s share increased from 11

to 16 percent.

Table 9

Wood pulp: U.S. imports for consumption by principal source, 1996-2000

Country 1996 1997 1998 1999 2000

–––––––––––––––––– Value (million dollars) ––––––––––––––––––––

Canada ...................... 2,159 2,165 1,946 2,098 2,670

Brazil ........................ 277 270 296 333 476

South Africa ................... 61 45 42 31 46

Chile ........................ 27 25 30 15 21

Sweden ...................... 9 9 7 9 19

Subtotal ................... 2,533 2,513 2,320 2,487 3,233

All other ...................... 60 49 63 50 57

Total ...................... 2,593 2,562 2,383 2,537 3,290

––––––––––––––––– Quantity (1,000 metric tons) –––––––––––––––

Canada ...................... 4,376 4,977 4,536 5,059 5,308

Brazil ........................ 545 584 674 821 1,056

South Africa ................... 74 81 22 24 13

Chile ........................ 61 62 82 35 38

Sweden ...................... 26 17 19 27 54

Subtotal ................... 5,081 5,722 5,343 5,965 6,469

All other ...................... 109 133 144 116 119

Total ...................... 5,190 5,854 5,478 6,081 6,588

–––––––––––––– Unit value (dollars per metric ton) ––––––––––––––

Canada ...................... 493 435 429 415 503

Brazil ........................ 508 462 439 407 451

South Africa ................... 827 559 1,901 1,288 3,563

Chile ........................ 450 395 360 429 550

Sweden ...................... 332 496 369 326 358

Top 5-average ................. 498 439 435 417 500

Others-average ................ 551 367 435 428 477

All average ................ 500 438 435 417 499

Note.—Because of rounding, figures may not add to totals shown, and unit values were calculated with

unrounded figures.

Source: Compiled from official statistics of the U.S. Department of Commerce.
 

106 U.S. Department of Commerce import statistics. 

29

Table 10 shows wood pulp imports by grade. Strength and high quality allow kraft (sulfate)

pulps to dominate U.S. imports and world trade in wood pulp. Kraft pulp accounted for

88 percent by weight of all U.S. wood pulp imports in 2000. Bleached softwood kraft pulp

accounted for 68 percent of kraft pulp imports.106 Imports from Canada are mainly NBSK.

Bleached hardwood kraft, which includes bleached eucalyptus kraft pulp (BEK) imported

from Brazil, accounts for most of the remainder.

Table 10

Wood pulp and waste paper: U.S. imports by grade, 1996-2000

Type 1996 1997 1998 1999 2000

––––––––––––––– Value (million dollars) –––––––––––––––

Groundwood pulps ..................... 32 27 28 36 30

Dissolving pulps ...................... 74 59 42 29 49

Kraft pulps ........................... 2,260 2,249 2,096 2,248 2,885

Sulfite pulps .......................... 121 97 106 106 160

Semichemical pulps .................... 93 109 91 100 144

Recycled and other pulps ................ 22 19 18 15

Total ............................. 2,593 2,562 2,383 2,537 3,290

Waste paper ......................... 55 77 60 60 91

Grand total ........................ 2,648 2,639 2,443 2,597 3,381

–––––––––––– Quantity (1,000 metric tons) –––––––––––––

Groundwood pulps ..................... 101 95 88 117 101

Dissolving pulps ...................... 92 101 18 9 12

Kraft pulps ........................... 4,478 5,081 4,830 5,356 5,806

Sulfite pulps .......................... 259 229 235 264 302

Semichemical pulps .................... 234 299 258 296 336

Recycled and other pulps ................ 27 51 49 40 32

Total ............................. 5,191 5,855 5,478 6,081 6,588

Waste paper ......................... 430 628 464 387 552

–––––––––––––– Unit value (1,000 dollars) ––––––––––––––

Groundwood pulps ..................... 312 281 318 306 357

Dissolving pulps ...................... 804 583 2,394 3,214 4,109

Kraft pulps ........................... 505 443 434 420 497

Sulfite pulps .......................... 469 426 452 402 530

Semichemical pulps .................... 398 365 354 339 430

Recycled and other .................... 467 428 387 452 469

Total pulp-average .................. 500 438 435 417 499

Waste paper-average .................. 128 122 130 156 165

Notes.—Because of rounding, figures may not add to totals shown, and unit values were calculated with

unrounded figures. Combined wood pulp and waste paper unit values are not representative of either commodity

and, therefore are not shown.

Source: Compiled from official statistics of the U.S. Department of Commerce.
30

Waste Paper

Imports of waste paper account for a small portion of total domestic consumption of waste

paper. In 2000, only 552,000 metric tons valued at $91 million was imported and represented

1.6 percent of apparent consumption (table 8). Crossborder trade with Canada and Mexico

accounts for virtually all (98 percent by weight) of 2000 waste paper imports (table 11).

Table 11

Waste paper: U.S. imports for consumption by principal sources, 1996-2000

Country 1996 1997 1998 1999 2000

–––––––––––––––––– Value (1,000 dollars) ––––––––––––––––––––

Canada ..................... 50,452 67,064 54,326 55,710 84,436

Mexico ...................... 4,062 4,939 5,209 4,030 4,980

United Kingdom ............... 47 3,041 6 78 797

Australia .................... 106 430 336 195 439

New Zealand ................. 0 0 0 0 186

Subtotal .................. 54,667 75,474 59,877 60,013 90,838

All other ..................... 483 1,326 411 366 313

Total ..................... 55,151 76,800 60,288 60,379 91,150

––––––––––––––––– Quantity (1,000 metric tons) –––––––––––––––––

Canada ..................... 412,493 598,800 446,776 371,376 520,310

Mexico ...................... 15,065 17,666 14,633 13,036 21,704

United Kingdom ............... 59 4,662 24 436 6,359

Australia .................... 153 1,823 1,094 751 1,282

New Zealand ................. 0 0 0 0 399

Subtotal .................. 427,770 621,951 462,527 385,599 550,054

All other ..................... 1,963 6,348 1,081 909 1,457

Total ..................... 429,773 628,299 463,608 386,508 551,511

––––––––––––––– Unit value (dollar per metric ton) ––––––––––––––––

Canada ..................... 122 112 122 150 162

Mexico ...................... 270 280 356 309 229

United Kingdom ............... 798 652 237 180 125

Australia .................... 694 523 307 259 343

New Zealand ................. (

1

) (

1

) (

1

) (

1

) 466

Top 5 average ................ 128 121 129 156 165

Others average ............... 246 209 380 402 215

All average ................ 128 122 130 156 165

Note.—Because of rounding, figures may not add to totals shown, and unit values were calculated with

unrounded figures.

Source: Compiled from official statistics of the U.S. Department of Commerce.
 

107 U.S. Department of Commerce export statistics.

 

108 International Fact and Price Book 1999, p. 284.

31

U.S. EXPORTS

Wood Pulp

The quantity of U.S. wood pulp exports declined by 8.7 percent during 1996-2000, from

6.6 million metric tons in 1996 to 6.1 million metric tons in 2000. However, the total value

of exports increased by 3.8 percent from $3.3 billion in 1996 to $3.4 billion in 2000 on the

strength of higher prices in 2000. Downtime, reduced market pulp capacity, and the strength

of the U.S. dollar all contributed to the decline in export volume. Exports in 2000 were

equivalent to 10.6 percent by weight of total U.S. production.

Exports of wood pulp are widely dispersed. During 1996-2000, the United States shipped

wood pulp to more than 100 countries. In 2000, the top 15 countries, which are shown in table

12, accounted for 85 percent (by weight) of all U.S. wood pulp exports. The top country in

2000, Japan, received about 13 percent of total exports. Europe and Asia were the top two

regional markets during the period 1996-2000, with the top spot changing back and forth

several times (table 13).

Table 14 shows U.S. pulp exports by grade during 1996-2000. Kraft pulp was at least 78

percent by weight of total wood pulp exports in each year and in 2000 comprised 80 percent

of total pulp exports. Kraft pulp exports consisted of bleached softwood kraft (66 percent by

weight of kraft pulp exports) and bleached hardwood kraft (31 percent by weight of kraft pulp

exports).107

Waste Paper

The United States is the world’s largest exporter of waste paper.108 During 1996-2000

average annual growth of U.S. exports of waste paper was 8.7 percent by weight, and in 2000

U.S. waste paper exports reached 9.9 million metric tons. U.S. waste paper exports were

equivalent to 17 percent by weight of collections in 1996 and 23 percent in 2000 (table 8). The

value of waste paper exports increased from $745 million in 1996 to $1,183 million in 2000.

Table 15 shows the top 10 countries for waste paper exports ranked by value. Canada and

Mexico are the largest markets, given the proximity of their mills to U.S. sources of waste

paper. Seven of the remaining top 10 markets are Asian countries. Several factors help explain

this. Asian mills may prefer U.S. waste paper because of its relatively high content of virgin

fiber, may benefit from less expensive backhaul freight rates, and may have limited local

supplies of waste paper.
32

Table 12

Wood pulp: U.S. exports by principal markets, 1996-2000

Country 1996 1997 1998 1999 2000

––––––––––––––––––––––––– Value (million dollars) –––––––––––––––––––––––––

Japan .................................... 521 478 409 416 494

Italy ...................................... 296 312 293 245 342

Mexico ................................... 222 259 237 272 308

Korea .................................... 308 261 161 242 274

Germany .................................. 256 258 245 209 251

United Kingdom ............................ 201 195 129 128 214

Netherlands ............................... 130 137 130 95 160

China .................................... 141 103 99 124 155

France ................................... 197 183 187 121 142

Canada ................................... 122 121 105 102 137

Belgium .................................. 66 66 67 69 106

Brazil .................................... 72 84 85 90 97

Taiwan ................................... 134 112 75 82 77

Spain .................................... 70 68 54 45 70

Indonesia ................................. 94 89 28 50 50

Subtotal ................................ 2,831 2,724 2,304 2,288 2,878

All other .................................. 458 394 378 414 537

Total ................................... 3,289 3,118 2,682 2,702 3,415

–––––––––––––––––––––– Quantity (1,000 metric tons) –––––––––––––––––––––––

Japan .................................... 1,003 927 792 763 761

Italy ...................................... 648 697 660 530 577

Mexico ................................... 533 731 711 768 874

Korea .................................... 735 611 406 543 496

Germany .................................. 380 355 357 316 354

United Kingdom ............................ 355 383 233 236 353

Netherlands ............................... 260 288 264 177 278

China .................................... 274 204 190 251 263

France ................................... 353 344 373 225 219

Canada ................................... 278 250 223 224 257

Belgium .................................. 115 124 145 143 189

Brazil .................................... 147 168 160 177 168

Taiwan ................................... 256 240 157 179 148

Spain .................................... 124 116 95 75 107

Indonesia ................................. 212 220 64 112 84

Subtotal ............................... 5,672 5,659 4,829 4,720 5,128

All other .................................. 964 842 812 859 928

Total .................................. 6,636 6,501 5,641 5,579 6,056

–––––––––––––––––––– Unit value (dollar per metric ton) –––––––––––––––––––––

Japan .................................... 520 515 516 545 649

Italy ...................................... 457 447 443 461 592

Mexico ................................... 418 354 334 354 352

Korea .................................... 419 427 395 445 552

Germany .................................. 672 726 686 661 709

United Kingdom ............................ 568 509 553 540 608

Netherlands ............................... 498 475 493 535 573

China .................................... 517 506 523 495 591

France ................................... 557 533 502 539 650

Canada ................................... 441 484 469 458 536

Belgium .................................. 576 531 465 482 563

Brazil .................................... 489 498 534 508 577

Taiwan ................................... 524 465 476 458 520

Spain .................................... 568 584 572 596 651

Indonesia ................................. 443 403 436 448 596

Top 15 average ............................ 499 481 477 485 561

Other average .............................. 475 468 466 482 579

Al average ............................. 496 480 475 484 564

Note.—Because of rounding, figures may not add to totals shown, and unit values were calculated with unrounded figures.

Source: Compiled from official statistics of the U.S. Department of Commerce.
33

Table 13 Wood pulp: U.S. exports by region, 1996-2000

Country 1996 1997 1998 1999 2000

–––––––––––––––– Quantity (1,000 metric tons) –––––––––––––––

Europe ......................... 2,375 2,454 2,309 1,899 2,302

Asia ........................... 2,880 2,501 1,874 2,182 2,071

North America ................... 834 998 961 1,019 1,160

South America ................... 392 441 376 392 385

Africa .......................... 109 75 84 51 106

Australia ....................... 46 31 37 35 33

Total ....................... 6,636 6,501 5,641 5,579 6,057

Note.—Because of rounding, figures may not add to totals shown.

Source: Compiled from official statistics of the U.S. Department of Commerce.

Table 14

Wood pulp and waste paper: U.S. exports by grade, 1996-2000

Type 1996 1997 1998 1999 2000

––––––––––––––– Value (million dollars) –––––––––––––––

Groundwood pulps .................... 29 53 20 38 49

Dissolving pulps ..................... 528 475 434 394 360

Kraft pulps .......................... 2,363 2,273 1,909 1,964 2,646

Sulfite pulps ......................... 195 139 110 78 86

Semichemical pulps ................... 59 41 65 69 81

Recycled and other pulps ............... 115 138 144 159 191

Total pulp ....................... 3,289 3,118 2,682 2,702 3,413

Waste paper ........................ 745 747 753 822 1,183

Grand total ...................... 4,034 3,865 3,435 3,524 4,596

––––––––––––– Quantity (1,000 metric tons) ––––––––––––

Groundwood pulps .................... 89 161 57 124 143

Dissolving pulps ..................... 595 517 462 452 421

Kraft pulps .......................... 5,151 5,137 4,465 4,425 4,834

Sulfite pulps ......................... 495 347 269 193 193

Semichemical pulps ................... 174 182 121 91 223

Recycled and other pulps ............... 131 159 175 194 240

Total pulp ....................... 6,636 6,501 5,641 5,578 6,053

Waste paper ........................ 6,494 6,809 7,349 7,517 9,896

––––––––––– Unit value (dollars per metric ton) ––––––––––

Groundwood pulps .................... 328 327 344 306 343

Dissolving pulps ..................... 887 923 940 872 855

Kraft pulps .......................... 459 442 428 444 547

Sulfite pulps ......................... 393 402 410 407 448

Semichemical pulps ................... 340 226 306 363 365

Recycled and other pulps ............... 877 865 821 820 796

Total pulp ....................... 496 480 475 484 564

Waste paper ........................ 115 110 102 109 120

Notes.—Because of rounding, figures may not add to totals shown, and unit values were calculated with

unrounded figures. Combined wood pulp and waste paper unit values are not representative of either commodity

and, therefore are not shown.

Source: Compiled from official statistics of the U.S. Department of Commerce.
34

Table 15

Waste paper: U.S. exports by principal markets, 1996-2000

Country 1996 1997 1998 1999 2000

–––––––––––––––––– Value (million dollars) ––––––––––––––––––––

Canada ....................... 156 187 205 220 318

Mexico ........................ 105 133 135 120 178

Korea ........................ 103 98 95 131 165

China ......................... 46 45 57 65 104

Indonesia ...................... 21 29 25 37 66

India ......................... 22 24 33 43 48

Thailand ...................... 23 20 18 23 39

Japan ........................ 53 44 33 36 39

Taiwan ....................... 62 49 39 32 37

Italy .......................... 17 8 11 21 30

Subtotal ..................... 606 637 652 728 1,022

All other ....................... 139 110 101 94 162

Total ....................... 745 747 753 822 1,183

–––––––––––––––– Quantity (1,000 metric tons) –––––––––––––––

Canada ....................... 1,254 1,750 2,187 2,083 2,539

Mexico ........................ 923 1,110 1,123 916 1,056

Korea ........................ 1,031 970 965 1,207 1,158

China ......................... 645 787 1,000 1,187 1,856

Indonesia ...................... 283 345 339 373 533

India ......................... 152 164 261 287 478

Thailand ...................... 258 214 213 268 405

Japan ........................ 349 329 228 231 216

Taiwan ....................... 643 420 318 290 556

Italy .......................... 124 57 65 88 148

Subtotal .................... 5,665 6,145 6,699 6,930 8,945

All other ....................... 832 664 650 587 951

Total ....................... 6,495 6,809 7,349 7,517 9,896

–––––––––––––– Unit value (dollars per metric ton) –––––––––––––

Canada ....................... 125 107 94 106 125

Mexico ........................ 114 120 120 131 168

Korea ........................ 99 101 98 108 142

China ......................... 71 57 57 54 56

Indonesia ...................... 73 85 74 99 123

India ......................... 142 146 126 151 100

Thailand ...................... 90 96 83 86 98

Japan ........................ 151 135 147 157 179

Taiwan ....................... 96 116 122 110 66

Italy .......................... 134 135 171 242 201

Top 10 average ................. 107 104 97 105 114

Other average .................. 167 166 156 160 170

All average ................. 115 110 102 109 120

Note.—Because of rounding, figures may not add to totals shown, and unit values were calculated with

unrounded figures.

Source: Compiled from official statistics of the U.S. Department of Commerce.
 

109 “Annual Review,” Pulp & Paper International, Vol. 43, No. 7 (July 2001).

35

U. S. TRADE MEASURES

Table 16 lists the subheadings and descriptions for Chapter 47 of the Harmonized Tariff

Schedule of the United States. Since the Tariff Act of 1922, wood pulp and waste paper

imports into the United States have been free of duty. In addition to their long-standing duty

free status, imports of wood pulp and waste paper are not subject to any embargoes, quotas,

or other nontariff barriers.

FOREIGN INDUSTRY PROFILE

In 2000 total estimated world production of wood pulp was 187 million metric tons, up

7.5 percent from 174 million metric tons in 1996. Important pulp-producing regions in 2000

included North America (40 percent of the world total), Europe (23 percent), and Asia (18

percent). These three regions accounted for 81 percent of global wood pulp production in

2000. Table 17 summarizes world pulp production by region. Approximately 23 percent of

total 2000 production (44 million metric tons) was market pulp.109

Countries from each of the top producing regions are represented in the top 10 countries

ranked by total and market pulp production (table18). In addition, South America is also

represented on the lists of both top total and market pulp producers. In 2000, the top three

pulp-producing countries by volume were the United States (30 percent), Canada (14 percent),

and China (9 percent). The United States produced 57 million metric tons of wood pulp in

2000, almost one-third of total world production and more than twice as much as Canada, the

next largest producer. However, Canada ranks first in market pulp production. Eight of the

top 10 countries ranked by total production also appear in the top 10 for market pulp

production. China and Japan, whose industries are oriented toward their domestic demand, are

replaced on the list of top market pulp producers by Spain and Portugal, whose industries are

oriented towards export markets.

Countries that import a large amount of wood pulp generally have a high consumption of

paper and paperboard, and their domestic paper industry requires imports to supplement its

internal supply of fiber. Europe and Asia are by far the largest regional importers of wood

pulp. In 2000, Europe imported 16.5 million metric tons or 46 percent of total world imports.

Asia imported 11.1 million metric tons or 31 percent of total world imports. Table 19 shows

the top 10 wood-pulp importing countries and the U.S. portion of each country’s imports.
36

Table 16

Harmonized Tariff Schedule Chapter 47

Wood pulp and waste paper: Subheading, description, and rates of duty, 2000

Rates of duty U.S.

exports

2000

U.S. 

imports

2000

HTS

subheading Description General Special Column 2

1,000 dollars

4701.00.00 Mechanical wood pulp .............. Free None Free 48,967 36,204

4702.00.00 Chemical wood pulp, dissolving

grades ....................... Free None Free 359,871 49,397

4703 Chemical wood pulp, soda or sulfate, 

other than dissolving grades:

Unbleached

4703.11.00 Coniferous .................. Free None Free 41,102 63,253

4703.19.00 Nonconiferous ............... Free None Free 2,514 1,763

Semibleached or bleached:

4703.21.00 Coniferous ....................

Free None Free

1,785,67

6 2,038,008

4703.29.00 Nonconiferous ................. Free None Free 816,214 781,880

4704 Chemical wood pulp, sulfite, other than 

dissolving grades:

Unbleached

4704.11.00 Coniferous .................. Free None Free 3,918 5,276

4704.19.00 Nonconiferous ............... Free None Free 9,794 534

Semibleached.or bleached:

4704.21.00 Coniferous .................. Free None Free 51,627 111,375

4704.29.00 Nonconiferous ............... Free None Free 20,915 42,717

4705.00.00 Semichemical wood pulp ............ Free None Free 81,410 144,369

4706 Pulps of other fibrous cellulosic material:

4706.10.00 Pulp from cotton linters .......... Free None Free 138,362 877

4706.20.00 Pulp from recycled fibers ......... Free None Free 31,643 9,775

Other:

4706.91.00 Mechanical .................. Free None Free 646 892

4706.92.00 Chemical ................... Free None Free 20,202 3,360

4706.93.00 Semichemical ................ Free None Free 1,696 87

4707 Waste and scrap of paper or paperboard:

4707.10.00 Of unbleached kraft paper, paperboard, or corrugated ........... Free None Free 306,908 25,082

4707.20.00 Of paper or paperboard made mainly

of bleached chemical pulp, not

colored in the mass ........... Free None Free 283,858 13,815

4707.30.00 Of paper or paperboard made mainly

of mechanical pulp ............ Free None Free 296,310 8,100

4707.90.00 Other, including unsorted scrap .... Free None Free 296,084 44,154

Source: U.S. Department of Commerce, Harmonized Tariff Schedule of the United States.
37

Table 17

World wood pulp and waste paper: Mills, capacity, production, capacity utilization, exports, imports, and apparent consumption, 1996-2000

19961 19971 19982 19993 20003

Change

 during

period

Percent

North America:

Wood pulp:

Mills (no.) ...................................... 253 253 253 249 243

––––––––––––––––– 1,000 metric tons –––––––––––––––––

Capacity ....................................... 91,163 93,060 93,472 92,745 92,184 1

Production ..................................... 83,202 84,638 82,357 83,028 84,004 1

Capacity utilization (percent) ....................... 91 91 88 90 91

Exports ........................................ 15,299 15,500 14,899 15,734 16,240 6

Imports ........................................ 5,774 6,632 6,055 6,710 7,186 24

Apparent consumption ............................ 73,677 75,770 73,513 74,004 74,950 2

Waste paper:

Collections ..................................... 43,106 46,051 46,047 48,274 50,655 18

Exports ........................................ 7,098 7,522 7,952 8,028 10,232 44

Imports ........................................ 3,762 4,211 4,199 4,126 4,319 15

Apparent consumption ............................ 39,770 42,740 42,294 44,372 44,742 13

Europe:

Wood pulp:

Mills (no.) ...................................... 346 341 314 310 306

––––––––––––––––– 1,000 metric tons –––––––––––––––––

Capacity ...................................... 54,347 54,384 55,085 53,067 51,681 -5

Production .................................... 39,324 42,527 42,871 44,511 47,756 21

Capacity utilization (percent) ...................... 72 78 78 84 92

Exports ....................................... 9,469 10,064 9,853 11,075 11,182 18

Imports ....................................... 14,091 14,944 14,915 15,972 16,491 17

Apparent consumption ........................... 43,946 47,407 47,933 49,408 53,065 21

Waste paper:

Collections .................................... 35,718 38,309 40,981 43,228 46,300 30

Exports ....................................... 7,391 7,570 8,696 10,259 10,810 46

Imports ....................................... 7,208 7,262 8,676 8,315 9,573 33

Apparent consumption ........................... 35,535 38,001 40,961 41,284 45,063 27

Asia:

Wood pulp:

Mills (no.) ......................................

4256 256 261 266 264

––––––––––––––––– 1,000 metric tons –––––––––––––––––

Capacity ...................................... 48,658 45,157 46,822 47,780 47,985 -1

Production .................................... 37,036 36,208 35,244 36,477 38,285 3

Capacity utilization (percent) ...................... 76 80 75 76 80

Exports ....................................... 1,382 1,395 1,635 1,522 1,934 40

Imports ....................................... 9,978 10,314 9,721 11,035 11,115 11

Apparent consumption ........................... 45,632 45,127 43,330 45,990 47,466 4

Waste paper:

Collections .................................... 36,007 37,982 39,780 43,106 45,712 27

Exports ....................................... 454 757 1,010 1,481 1,789 294

Imports ....................................... 7,480 7,307 9,118 10,615 11,507 54

Apparent consumption ........................... 43,033 44,532 47,888 52,240 55,430 29

South America:

Wood pulp:

Mills (no.) ..................................... 50 48 49 46 107

––––––––––––––––– 1,000 metric tons –––––––––––––––––

Capacity ...................................... 11,723 11,674 11,788 12,024 12,524 7

Production .................................... 9,553 9,637 10,151 10,851 11,743 23

Capacity utilization (percent) ...................... 81 83 86 90 94

Exports ....................................... 3,692 3,686 4,642 5,118 4,991 35

Imports ....................................... 561 666 650 711 671 20

Apparent consumption ........................... 6,422 6,617 6,159 6,444 7,423 16

Waste paper:

Collections .................................... 3,563 3,642 4,041 4,055 4,368 23

Exports ....................................... 12 12 28 25 34 183

Imports ....................................... 256 354 231 220 352 38

Apparent consumption ........................... 3,807 3,984 4,244 4,250 4,686 23
38

Table 17—Continued

World wood pulp and waste paper: Mills, capacity, production, capacity utilization, exports, imports, and apparent consumption, 1996-2000

19961 19971 19982 19993 20003

Change

 during

period

Percent

Africa:

Wood pulp:

Mills (no.) ...................................... 29 29 24 28 28

––––––––––––––––– 1,000 metric tons –––––––––––––––––

Capacity ....................................... 3,220 3,370 3,380 3,455 3,673 14

Production ..................................... 2,598 2,877 2,807 2,739 2,853 10

Capacity utilization (percent) ....................... 81 85 83 79 78

Exports ........................................ 958 1,109 1,077 979 995 4

Imports ........................................ 306 237 261 294 330 8

Apparent consumption ............................ 1,946 2,005 1,991 2,054 2,188 12

Waste paper:

Collections ..................................... 1,011 1,063 1,209 1,246 1,313 30

Exports ........................................ 8 5 1 0 2 -75

Imports ........................................ 145 135 134 150 182 26

Apparent consumption ............................ 1,148 1,193 1,342 1,396 1,493 30

Australia/Oceania:

Wood pulp:

Mills (no.) ...................................... 17 17 17 17 17

––––––––––––––––– 1,000 metric tons –––––––––––––––––

Capacity ...................................... 2,814 2,814 2,814 2,814 2,914 4

Production .................................... 2,308 2,315 2,354 2,339 2,490 8

Capacity utilization (percent) ...................... 82 82 84 83 85

Exports ....................................... 681 589 707 629 676 -1

Imports ....................................... 198 213 195 327 280 41

Apparent consumption ........................... 1,825 1,939 1,842 2,037 2,094 15

Waste paper:

Collections .................................... 1,341 1,676 1,624 1,944 1,814 35

Exports ....................................... 93 148 167 362 390 319

Imports ....................................... 0 48 43 46 49 ERR

Apparent consumption ........................... 1,248 1,576 1,500 1,628 1,473 18

World total:

Wood pulp:

Mills (no.) ..................................... 951 944 918 916 965

––––––––––––––––– 1,000 metric tons –––––––––––––––––

Capacity ...................................... 211,925 210,459 213,361 211,885 210,961 -0

Production .................................... 174,021 178,202 175,784 179,945 187,131 8

Capacity utilization (percent) ...................... 82 85 82 85 89

Exports ....................................... 31,481 32,343 32,813 35,057 36,018 14

Imports ....................................... 30,908 33,006 31,797 35,049 36,073 17

Apparent consumption ........................... 173,448 178,865 174,768 179,937 187,186 8

Waste paper:

Collections .................................... 120,746 128,723 133,682 141,853 150,162 24

Exports ....................................... 15,056 16,014 17,854 20,155 23,257 54

Imports ....................................... 18,851 19,317 22,401 23,472 25,982 38

Apparent consumption ........................... 124,541 132,026 138,229 145,170 152,887 23

1 Pulp & Paper International, Vol. 40, No. 7 (July 1998), p. 16-88.

2 Pulp & Paper International, Vol. 41, No. 7 (July 1999), p. 10-63, and Pulp & Paper International, Vol. 41, No. 8 (Aug. 1999),

pp. 29-43.

3 Pulp & Paper International, Vol. 43, No. 7 (July 2001), p. 5-74.

4

 Chinese pulp mills are not included in this figure. The total number of pulp mills in China has not been established but is estimated to

be approximately 5,000.
 

110 In 2000, Asia’s portion of world imports of waste paper was 44 percent, and Europe’s was

37 percent.

39

Table 18

Total and market pulp production: Top 10 countries, 2000

Total pulp Market pulp

Country 1,000 metric tons Country 1,000 metric tons

United States .......... 57,002 Canada ............. 11,123

Canada .............. 26,411 United States ......... 7,758

China ................ 17,150 Sweden ............. 3,877

Finland .............. 11,910 Brazil ............... 3,694

Sweden .............. 11,517 Chile ............... 2,076

Japan ............... 11,399 Russia .............. 2,000

Brazil ................ 7,463 Finland ............. 1,845

Russia ............... 5,814 Indonesia ............ 1,493

Indonesia ............. 4,089 Spain ............... 1,193

Chile ................ 2,841 Portugal ............. 1,160

Top 10 total ........... 155,596 Top 10 total .......... 36,219

All other .............. 31,535 All other ............. 7,451

Grand total ......... 187,131 Grand total ........ 43,670

Source: Pulp & Paper International, Vol. 43, No. 7 (July 2001), p. 5-74.

Table 19

Wood pulp: Major world importers and U.S. share of market, 2000

Country

Total

 imports1

U.S.

portion2

Market

share

1,000 metric tons Percent

Germany .......................................... 4,320 354 8

China ............................................. 3,356 263 8

Japan ............................................ 3,096 761 25

Italy .............................................. 2,991 577 19

France ............................................ 2,299 219 10

South Korea ....................................... 2,137 496 23

United Kingdom ..................................... 1,661 353 21

Taiwan ........................................... 817 148 18

Netherlands ........................................ 785 278 35

Indonesia .......................................... 746 84 11

Top 10 total ........................................ 22,208 3,533 16

U.S. & other ........................................ 13,865

Grand total ..................................... 36,073

1 Pulp & Paper International, Vol. 43, No. 7 (July 2001), p. 5-74.

2

 U.S. Department of Commerce.

Asia and Europe are also the largest regional waste paper markets. In 2000, these two regions

together accounted for 81 percent of world imports of waste paper.110 The fact that seven of

the top 10 waste-paper-importing countries (table 20) are common to the list of top wood pulp

importers also indicates that those countries must supplement their domestic fiber supplies.

Some countries on the list, such as Canada, also have relatively small domestic supplies of

waste paper. In spite of an almost unlimited supply of virgin fiber, paper markets and content

laws still compel Canada’s paper manufactures to include recycled fiber in their paper

products.
 

111 “Annual Review,” Pulp & Paper International, Vol. 43, No. 7 (July 2001)

 

112 “Old-growth” refers to stands of very large, mature timber (typically in the Pacific

Northwest) that have never been logged.

40

Table 20

Waste paper: Major world importers and U.S. share of market, 2000

Country

Total

 imports1

U.S.

portion2

Market

share

1,000 metric tons Percent

China ............................................ 3,563 1,856 52

Canada .......................................... 2,277 32,277 100

Indonesia ......................................... 2,345 533 23

South Korea ...................................... 1,963 1,158 59

Netherlands ....................................... 1,895 41 2

Mexico ........................................... 1,385 1,056 76

France ........................................... 1,363 9 1

Germany ......................................... 1,327 7 1

Taiwan .......................................... 1,036 556 54

Thailand ......................................... 952 405 43

Top 10 - total ...................................... 18,106 9,448 52

Other ............................................ 7,876

Grand total ....................................... 25,982

1

 Source: Pulp & Paper International, Vol. 43, No. 7 (July 2001), p. 5-74.

2

 Source: U.S. Department of Commerce.

3

 U.S. Department of Commerce records total waste paper exports to Canada of 2539 metric tons.

The United States supplies a large share of both Canadian and Mexican waste paper imports.

In 2000, waste paper from the United States accounted for all Canadian imports and 76

percent of Mexican imports. Five of the remaining eight largest waste paper markets are Asian

countries (table 20). In some cases Asian countries have limited domestic supplies of waste

paper, and the Pacific Rim is a natural outlet for waste paper exported from the West Coast

of the United States. Europe, with strong waste- paper-recycling programs, often has surplus

waste paper, which it, too, sends to Asian mills.

North America

Canada has significant forest resources and consistently leads the world in market pulp

production. Canada’s 48 pulp mills have a total capacity of 28 million metric tons111 and are

concentrated in Quebec, Ontario, and British Columbia. Total pulp production increased from

24.4 million metric tons in 1996 to 26.4 million tons in 2000 (table B-5). Market pulp

production increased from 9.7 million metric tons in 1996 to 11.1 million metric tons in 2000.

Production capacity far in excess of domestic demand and high quality products (e.g., NBSK)

will likely allow the Canadian industry to maintain its current position. As is the case in the

United States, environmental pressure on Canada’s fiber base is increasing,

particularly in coastal regions of British Columbia where there are extensive stands of oldgrowth timber.112
 

113 “Annual Review,” Pulp & Paper International, Vol. 43, No. 7 (July 2001), p.9

 

114 Ibid., p. 35.

 

115 “The State of the Industry,” FAO Advisory Committee on Paper and Wood Products, found

at http://www.fao.org/forestry/fop/fopw/gfsm/acpwp/40/indus.htm, retrieved June 20, 2000, p 45.

41

Mexico is not a major world producer of wood pulp. However, during 1996-2000 total pulp

production increased by 71,000 metric tons to 582,000 metric tons.113 Mexico’s imports of

wood pulp from the United States were fairly steady through the summary period (table 12).

In 2000, Mexico was the largest U.S. customer by volume and third-largest by value (behind

Japan and Italy).

Europe

In 2000, three European countries, Finland, Sweden, and Russia, ranked in the top 10 world

pulp producers. The Nordic countries, traditionally an important source of forest products,

are well-positioned to meet European demand. Together, Finland and Sweden produced over

23 million metric tons of pulp (13 percent of total world production) in 2000. Finland has 43

generally modern pulp mills with a total capacity of 13.6 million metric tons (table B-8).

Sweden has 45 pulp mills with a capacity 11.7 million metric tons. Nordic companies have

been actively restructuring; both local and international mergers have been completed recently.

Russia has 35 pulp mills with a total estimated capacity of 6 million metric tons but recently

has diverted some market pulp to the domestic manufacture of paper and paperboard;

currency devaluations have made imported pulp prohibitively expensive for Russian paper

mills.114

Eucalyptus plantations are being established on the Iberian Peninsula. Both Portugal and

Spain are in the top 10 countries ranked by market pulp production, and the European

industry has access to a local supply of high-quality bleached eucalyptus kraft (BEK) pulp.

In 1998 Portugal had 600,000 hectares (ha) or 1.5 million acres of Eucalyptus plantation.115

Portugal has 7 pulp mills with a total capacity of 1.8 million metric tons. 

Annual per capita consumption of paper and paperboard in the European Union grew by more

than 4 percent annually during 1996-2000 and in 2000 averaged 210.5 kg. In spite of the

availability of pulp from traditional Nordic suppliers and the new Iberian producers, Europe

should remain an important market for U.S. producers as consumption of paper and

paperboard in eastern Europe, (per capita consumption of 29.1 kg in 2000) increases.

Asia

Asia’s portion of the world’s total pulp production increased steadily during the first half of

the 1990s and was 38.3 million metric tons (20 percent of world production) in 2000. Major

producing countries in Asia include China, Japan, and Indonesia.

China’s production of wood pulp declined slightly during 1996-2000 to 17.2 million metric

tons in 2000 (table B-7). Its total pulp capacity in 2000 was estimated to be 20 million metric

tons. The total number of pulp mills in China has not been established definitely but is
 

116 China’s small mills are estimated to have an average production capacity of 2,500 metric

tons per year. “Annual Review,” Pulp & Paper International, Vol. 42, No. 7 (July 2000), p. 55.

 

117 Zhenlei Cao, “China: Now and in the Future”, Tappi Journal, Vol. 79, No. 5 (May, 1996),

p. 68.

 

118 “Waste Paper: Rising Demand Raises Problems,” International Papermaker, Aug. 1996

 

119 Pulp & Paper International, 1999 International Price and Factbook, p. 36.

 

120 Coleman, Matthew J., “Tropical Forestry: Acacia Plantations in Indonesia,” Tappi Journal,

Vol. 81, No. 12, (Dec. 1998), p. 43.

 

121 Most plantations were established with either Acacia mangium or Acacia crassicarpa, but

Gmelina arborea and Eucalyptus deglupta were also planted. Barr, Christopher, “Profits on

Paper: The Political-Economy of Fiber, Finance, and Debt in Indonesia’s Pulp and Paper

Industries,” to be published as a chapter in the forthcoming book, A Critical Assessment of

Structural Adjustment in Indonesia’s Forest and Estate Crop Industries, CIFOR and WWFInternational, Nov. 2000.

 

122 Barr, Christopher, “Profits on Paper: The Political-Economy of Fiber, Finance, and Debt in

Indonesia’s Pulp and Paper Industries,” to be published as a chapter in the forthcoming book, A

Critical Assessment of Structural Adjustment in Indonesia’s Forest and Estate Crop Industries,

CIFOR and WWF-International, Nov. 2000.

 

123 Ibid.

42

estimated to be approximately 5,000. Many are small mills116 that lack the scale necessary to

compete effectively now that China has entered the WTO. Chinese manufacturers, therefore,

are making large investments to upgrade capacity. Foreign competition (through foreign

investment in Chinese mills) is already changing the complexion of pulp production in China.

Limited raw material supply is a significant impediment to further growth as China’s industry

shifts away from paper products made with imported, virgin fiber paper towards those made

with domestic, recycled paper.117 Although China ranks third in total pulp production, it ranks

twenty-third in market pulp production. Expanding domestic demand will likely continue to

absorb China’s increasing output. 

Japan’s 44 pulp mills have an estimated pulping capacity of 15.6 million metric tons. Like

China, domestic wood fiber supply is constrained in Japan, and most of Japan’s production

goes towards meeting domestic demand. Japan’s industry has become adept at using recycled

fiber, especially in higher, value-added grades of paper. Its industry is moving toward

elemental-chlorine-free bleaching more in response to pending environmental restrictions

rather than to changing consumer preferences as in Europe.118 Japanese pulp and paper

companies are consolidating (e.g., Nippon and Daishowa). Japan is thirteenth when ranked

by market pulp production.

In 1990 Indonesia had an estimated 1.1 million metric tons of pulp capacity.119 By 2000,

however, the country’s 14 very large, generally modern pulp mills had an estimated capacity

of 5.2 million metric tons. Unlike other Asian nations, Indonesia has a large wood fiber base,

and pulp and paper production was an integral part of its national land and forest resource

management plan.120 Fiber from native forests was to be supplemented and ultimately

supplanted by the establishment of plantations of fast-growing tree species, particularly of the

genus, Acacia.121 “Conversion forests” were allocated to major producers for harvesting and

planting.122 Annual growth or mean annual increment (MAI) of the plantations was initially

reported to be 15-20 cubic meters per hectare per year but generally improved to 20-25 cubic

meters per hectare per year.123 Industry growth was aided by the restructuring of the banking
 

124 “Annual Review,” Pulp & Paper International, Vol. 42, No. 7 (July 2000), p. 58.

 

125 Richard Altwarg and Matthew Coleman, “Indonesian Update: A Country in Change, An

Industry in Recovery,” Tappi Journal, Vol. 81, No. 9 (Sept. 1998), p. 53.

 

126 Barr, “Profits on Paper ...,” CIFOR, Nov. 2000.

 

127 Brian Stafford, “Indonesia Debt and Disappearing Wood Challenge Pulp and Paper Mills,”

Pima’s Asia Pacific Papermaker, Vol. 10 No. 9 (Sept. 2000), pp. 19-22.

 

128 Barr, “Profits on Paper ...,” CIFOR, Nov. 2000.

 

129 “APRIL starts up 700,000 tonne/yr bleached hardwood pulp line in Indonesia,” found at

http://www.paperloop.com and retrieved on June 1, 2001.

 

130 Pulp & Paper International, Vol. 42, No. 7 (July 2000), p. 8.

 

131 During the 1990s’ China’s per capita consumption increased on average by 8.4 percent per

year. Pulp & Paper International, Vol. 42, No. 7, (July 2000), p. 8. Pulp & Paper International,

Vol. 33, No. 7, (July 1991), p. 268.

 

132 Zhenlei Cao, “China: Now and in the Future”, Tappi Journal, Vol. 79, No. 5 (May, 1996),

p. 68.

43

system and a period of relative civil and political stability which lasted until 1998.124

Indonesian pulp producers reacted to the subsequent political and financial storms by shifting

production to export markets as domestic demand for wood pulp contracted.125 Recently,

however, they have staggered under the very heavy debt incurred during the wave of

expansion. Current operations as well as plans for further expansion are threatened as

allegations of financial mismanagement and wrongdoing have emerged.126

Moreover, the fiber supply at some Indonesian mills is in question. Fiber available from

plantations is uncertain because mills have allegedly overstated the area of plantations actually

established, because soil degradation resulting from intensive plantation management has

inhibited the growth of subsequent rotations, and because local villagers have reclaimed for

oil palm production some of the land previously allotted to industry for fiber production.127

Fiber available from natural forests is uncertain because forest fires have reduced the lawful

production from native forests and because mills have allegedly obtained wood fiber from

undocumented sources, particularly native forests which have been logged unlawfully.128 It

has recently been reported that pulp production in Indonesia is being constrained by the supply

of wood chips.129 The alternative for Indonesian mills facing inadequate local fiber supplies

is to import relatively expensive wood chips from New Zealand or Australia.

Asia is likely to remain an important market for U.S. producers of wood pulp. Domestic

supplies of wood fiber are limited in several Asian markets (e.g., Japan, Taiwan, and Korea)

that have well-developed paper industries and high per capita consumption of paper and

paperboard products.130 Also, China’s per capita consumption of paper and paperboard has

risen quickly and is expected to continue rising.131 As its paper industry grows to meet the new

demand, China is expected to remain a major importer of softwood pulp.132
 

133 “Global Outlook for Plantations,” FAO Advisory Committee on Paper and Wood Products,

found at http://www.fao.org/forestry/fop/fopw/gfsm/acpwp/40/carne.htm, retrieved June 20, 2000,

p. 9.

 

134 Comments of Sergio Almeida at the Market Pulp Symposium 2000 in Brussels found at

www.paperloop.com/inside/stories/wk05_15_2000/14.shtml, retrieved June 19, 2000.

 

135 Alarcon, Victor, “Aracruz: A view from the top,” Pima’s International Papermaker, Vol.

83, No. 5 (May 2001), p. 40. 

 

136 “Annual Review,” Pulp & Paper International, Vol. 43, No. 7 (July 2001), p. 63.

 

137 One hectare equals 2.471 acres.

 

138 Almeida, Market Pulp Symposium comments.

 

139 One cunit equals 100 cubic feet ro 2.83 cubic meters.

 

140 Almeida, Market Pulp Symposium comments and “The State of the Industry,” FAO

Advisory Committee on Paper and Wood Products, found at

http://www.fao.org/forestry/fop/fopw/gfsm/acpwp/40/indus.htm, retrieved June 20, 2000.

 

141 D. N. Wear, 1996. Forest Management and Timber Production in the U.S. South

[Document prepared for Canada/United States lumber consultations]. SCFER Working

44

South America

As production of wood fiber from natural forests throughout the world is constrained either

by depletion or increased regulations, those countries that can grow wood fiber the fastest will

have a significant natural advantage in the production of wood pulp.133 The natural advantage

afforded by the combination of fast-growing tree species and the highly favorable growing

conditions inherent to parts of the continent has long been recognized, but development of a

South American wood pulp industry was constrained by lack of a supporting infrastructure.

Slowly, this obstacle has been overcome, and at present, all large South American companies

have announced wood pulp capacity expansions. Were all announced projects to be

completed, an extra 2.5 million metric tons of capacity would be added in the next 2 or 3

years. Future expansion plans will likely focus on Brazil and Argentina, both of which have

available land resources.134

During the 1990s, Brazil’s total pulp production grew at an average annual rate of 5 percent.

Most of Brazil’s production is exported.135 By 2000, Brazil ranked seventh in total pulp

production and fourth in market pulp production and had total wood-pulping capacity of 7.9

million metric tons (table B-6). Brazil’s capacity will continue to expand as current expansion

projects reach completion. It is estimated that by 2005 Brazil’s capacity will top 11 million

metric tons.136

Plantations of exotic, fast-growing eucalyptus trees provide the wood fiber for Brazil’s

expanding production. The country’s eucalyptus plantations increased from less than 1 million

hectares (1.7 million acres)137 in 1990 to 1.6 million hectares (4 million acres) in 1999.138 In

addition to the increasing land base committed to production of eucalyptus, genetic

improvement of the growing stock has also increased the already high yields of eucalyptus

plantations. Eucalyptus clones that exhibit both disease resistance and low nutritional demand

are favored. In 1990 MAI was estimated to be about 35 cubic meters per hectare per year (5

cunits per acre per year).139 By 1999, MAI had increased to 45-50 cubic meters per hectare

per year (6.5-7 cunits per acre per year), and it is expected to reach 80 cubic meters per

hectare per year (11 cunits per acre per year) within a decade.140 By contrast average

productivity in the Southeastern United States is less than 1 cunit per acre per year,141 and that
Paper(82):1-40. Southeastern Center for Forest Economics Research, Research Triangle Park,

NC.

 

142 F. W. Cubbage, Siry, R. Abt, D. Wear, and S. Moffat. 1999 Forest Productivity and Timber

Supply Modeling in the South. pp. 285-290 IN: Ek, A. R. and B. Zumbahlen. Duluth MN.

Conference Proceedings: Improving Forest Productivity for Timber, Dec. 1, 1998. 

 

143 Almeida, Market Pulp Symposium comments.

 

144 “The Chilean Forestry Sector of Today and Its Projections for the Coming Century,” found

at www.dicelpa.cl/iproyec.htm, retrieved June 21, 2000.

 

145 Known also as Monterrey Pine, Pinus radiata is a species indigenous to California that has

been widely planted as an exotic for pulp and wood products production in South America, New

Zealand, and Australia.

 

146 Southern yellow pines are 11 species of pine indigenous to the Southern United States, the

most commercially important of which are loblolly pine (Pinus taeda) and slash pine (Pinus

elliottii). These species are now being planted as exotics in South America.

 

147 Maria Rosario, “Arauco Makes the Most of Difficult Times,” Pima’s Papermaker, Aug.

2000, p. 25.

45

of intensively managed plantations in the U.S. Southeast is approximately two cunits per acre

per year.142

Other factors contributing to Brazil’s competitive position and, hence, the continued growth

of its wood pulp industry are rising domestic demand, devaluation of the real against the

dollar, and continued cost control. Cost cutting efforts include lower fiber costs through

mechanized harvesting, lower logistics costs, reduced head counts, increased scale of mills,

and consolidations. It was estimated that in 1999, some 5 million metric tons of South

American wood pulp were produced at a cash cost of less than $300 per ton (based on

delivery to the Northern European market).143

Chile’s industry has also grown very rapidly. During the 1990s, Chile’s wood pulp production

increased on average 12 percent per year, and by 2000 Chile ranked 10th in total world pulp

production (2.8 million metric tons) and fifth in market pulp production (2.1 million metric

tons). Chile’s 11 pulp mills had a capacity of 2.7 million metric tons in 2000. By 1996 a total

of approximately 1.9 million hectares (5 million acres) of plantations had been established.

Approximately 300,000 hectares (741,000 acres) were eucalyptus, but most, 1.3 million

hectares (3 million acres),144 were an exotic softwood species, Radiata Pine (Pinus radiata).145

Growth rates range from 10-40 m3 per hectare per year (1.5-5.7 cunits per acre per year).

Chile is also establishing plantations of southern yellow pines146 for both wood pulp and solid

wood products. Growth averages from 30-33 m3 per hectare per year.147

FOREIGN TRADE MEASURES

Although wood pulp is processed wood fiber, it is nonetheless regarded as a raw material. In

all major markets for wood pulp, there is little or no duty on imports. Likewise, wastepaper

generally is free of duty. Shipments to the European Union, Indonesia, and Japan are dutyfree. China has a tariff rate of 1 percent. Taiwan duties on wood pulp and waste paper range

from free to 2.5 percent. Trade in wood pulp and waste paper is generally not affected by

nontariff barriers.
 

148 During 1996-2000 , exports decreased by 580,000 metric tons, and imports increased by

1.4 million metric tons.

46

U.S. TRADE BALANCE

Table 21 summarizes the annual trade balance for wood pulp during 1996-2000. The trade

balance remained positive in spite of a 2-million-metric-ton swing in volume.148 The trade

balance dropped in each year of the period from almost $700 million in 1996 to $125 million

in 2000. Given the cyclical nature of the industry, however, it is not clear that this trend will

continue. Wood pulp prices recovered in 2000 from the relatively low prices observed earlier

in the period, and demand for wood pulp will continue to grow with the increased consumption

of paper and paperboard particularly in regions such as Asia and Eastern Europe.

Table 21

Wood pulp: U.S. trade balance, 1996-2000

Country 1996 1997 1998 1999 2000

–––––––– Exports by principal market (million dollars) –––––––

Japan ........................... 521 478 409 416 494

Italy ............................. 296 312 293 245 342

Mexico ........................... 222 259 237 272 308

Korea ........................... 308 261 161 242 274

Germany ......................... 256 258 245 209 251

United Kingdom .................... 201 195 129 128 214

Netherlands ....................... 130 137 130 95 160

China ............................ 141 103 99 124 155

France ........................... 197 183 187 121 142

Canada .......................... 122 121 105 102 137

Belgium .......................... 66 66 67 69 106

Brazil ............................ 72 84 85 90 97

Taiwan .......................... 134 112 75 82 77

Spain ............................ 70 68 54 45 70

Indonesia ......................... 94 89 28 50 50

Subtotal ....................... 2,831 2,724 2,304 2,288 2,878

All other .......................... 458 394 378 414 537

Total ......................... 3,289 3,118 2,682 2,702 3,415

–– Imports for consumption by principal source (million dollars) –––

Canada .......................... 2,159 2,165 1,946 2,098 2,670

Brazil ............................ 277 270 296 333 476

South Africa ....................... 61 45 42 31 46

Chile ............................ 27 25 30 15 21

Sweden .......................... 9 9 7 9 19

Subtotal ....................... 2,533 2,513 2,320 2,487 3,233

All others ......................... 60 49 63 50 57

Total .......................... 2,593 2,562 2,383 2,537 3,290

––––––––––––– Trade balance (million dollars) ––––––––––––

Total exports ...................... 3,289 3,118 $2,682 2,702 3,415

Total imports ...................... 2,593 2,562 2,383 2,537 3,290

Trade balance ..................... 696 556 299 165 125

Note.—Because of rounding, figures may not add to totals shown. Import values are based on customs value;

export values are based on f.a.s. values.

Source: Compiled from official statistics of the U.S. Department of Commerce.
47

Table 22 summarizes the annual trade balance for waste paper 1996-2000. After remaining

relatively stable during the first 3 years of the period, the balance for waste paper increased

about $400 million from $690 million in 1996 to $1.1 billion in 2000. Given the large U.S.

domestic supply of waste paper, it is unlikely that the waste paper trade balance will be

negative, at least in the foreseeable future. Future export levels will likely be determined by

total demand for pulp and paper products and the growing domestic demand for waste paper.

Table 22

Waste paper: U.S. trade balance, 1996-2000

Country 1996 1997 1998 1999 2000

–––––––– Exports by principal market (million dollars) –––––––

Canada ........................... 156 187 205 220 318

Mexico ............................ 105 133 135 120 178

Korea ............................ 103 98 95 131 165

China ............................. 46 45 57 65 104

Indonesia .......................... 21 29 25 37 66

India ............................. 22 24 33 43 48

Thailand .......................... 23 20 18 23 39

Japan ............................ 53 44 33 36 39

Taiwan ........................... 62 49 39 32 37

Italy .............................. 17 8 11 21 30

Subtotal ........................ 606 637 652 728 1,022

All other ........................... 139 110 101 94 162

Total ........................... 745 747 753 822 1,183

– Imports for consumption by principal source (million dollars) –

Canada ........................... 50.5 67.1 54.3 55.7 84.4

Mexico ............................ 4.1 4.9 5.2 4.0 5.0

United Kingdom ..................... (

1

) 3.0 (

1

) 0.1 0.8

Australia .......................... 0.1 0.3 0.3 0.2 0.4

New Zealand ....................... 0.0 0.0 0.0 0.0 0.2

Subtotal ........................ 54.7 75.5 59.9 60.0 90.8

All other ........................... 0.5 1.3 0.4 0.4 0.3

Total ........................... 55.2 76.8 60.3 60.4 91.2

––––––––––––– Trade balance (million dollars) –––––––––––

Total exports ....................... 745 747 753 822 1,183

Total imports ....................... 55 77 60 60 91

Trade balance ...................... 690 670 693 762 1,092

Note.—Because of rounding, figures may not add to totals shown. Import values are based on customs value;

export values are based on f.a.s. values.

Source: Compiled from official statistics of the U.S. Department of Commerce.

APPENDIX A

EXPLANATION OF TARIFF AND TRADE

AGREEMENT TERMS
A-2

TARIFF AND TRADE AGREEMENT

TERMS

In the Harmonized Tariff Schedule of the United States (HTS), chapters 1 through 97

cover all goods in trade and incorporate in the tariff nomenclature the internationally adopted

Harmonized Commodity Description and Coding System through the 6-digit level of product

description. Subordinate 8-digit product subdivisions, either enacted by Congress or

proclaimed by the President, allow more narrowly applicable duty rates; 10-digit

administrative statistical reporting numbers provide data of national interest. Chapters 98 and

99 contain special U.S. classifications and temporary rate provisions, respectively. The HTS

replaced the Tariff Schedules of the United States (TSUS) effective January 1, 1989.

Duty rates in the general subcolumn of HTS column 1 are normal trade relations rates,

many of which have been eliminated or are being reduced as concessions resulting from the

Uruguay Round of Multilateral Trade Negotiations. Column 1-general duty rates apply to

all countries except those listed in HTS general note 3(b) (Afghanistan, Cuba, Laos, North

Korea, and Vietnam) plus Serbia and Montenegro, which are subject to the statutory rates

set forth in column 2. Specified goods from designated general-rate countries may be eligible

for reduced rates of duty or for duty-free entry under one or more preferential tariff

programs. Such tariff treatment is set forth in the special subcolumn of HTS rate of duty

column 1 or in the general notes. If eligibility for special tariff rates is not claimed or

established, goods are dutiable at column 1-general rates. The HTS does not enumerate

those countries as to which a total or partial embargo has been declared.

The Generalized System of Preferences (GSP) affords nonreciprocal tariff preferences

to developing countries to aid their economic development and to diversify and expand their

production and exports. The U.S. GSP, enacted in title V of the Trade Act of 1974 for 10

years and extended several times thereafter, applies to merchandise imported on or after

January 1, 1976 and before the close of September 30, 2001. Indicated by the symbol "A",

"A*", or "A+" in the special subcolumn, the GSP provides duty-free entry to eligible articles

the product of and imported directly from designated beneficiary developing countries, as set

forth in general note 4 to the HTS. Eligible products of qualifying sub-Saharan African

countries may qualify for duty-free entry under the African Growth and Opportunity Act

(AGOA), under the terms of general note 16 to the tariff schedule, through September 30,

2008, as indicated by the symbol “D” in the special subcolumn and as set forth in subchapter

XIX of chapter 98.

The Caribbean Basin Economic Recovery Act (CBERA) affords nonreciprocal tariff

preferences to developing countries in the Caribbean Basin area to aid their economic

development and to diversify and expand their production and exports. The CBERA,

enacted in title II of Public Law 98-67, implemented by Presidential Proclamation 5133 of

November 30, 1983, and amended by the Customs and Trade Act of 1990, applies to

merchandise entered, or withdrawn from warehouse for consumption, on or after January

1, 1984. Indicated by the symbol "E" or "E*" in the special subcolumn, the CBERA provides

duty-free entry to eligible articles, and reduced-duty treatment to certain other articles, which

are the product of and imported directly from designated countries, as set forth in general
A-3

note 7 to the HTS. Eligible products of qualifying beneficiary countries may qualify for dutyfree or reduced-duty entry under the Caribbean Basin Trade Partnership Act (CBTPA),

under the terms of general note 17 to the tariff schedule, through September 30, 2008, as

indicated by the symbol “R” in the special subcolumn and in subchapter XX of chapter 98.

Free rates of duty in the special subcolumn followed by the symbol "IL" are applicable to

products of Israel under the United States-Israel Free Trade Area Implementation Act

of 1985 (IFTA), as provided in general note 8 to the HTS. 

Preferential nonreciprocal duty-free or reduced-duty treatment in the special subcolumn

followed by the symbol "J" or "J*" in parentheses is afforded to eligible articles the product

of designated beneficiary countries under the Andean Trade Preference Act (ATPA),

enacted as title II of Public Law 102-182 and implemented by Presidential Proclamation

6455 of July 2, 1992 (effective July 22, 1992), as set forth in general note 11 to the HTS.

Preferential free rates of duty in the special subcolumn followed by the symbol "CA" are

applicable to eligible goods of Canada, and rates followed by the symbol "MX" are applicable

to eligible goods of Mexico, under the North American Free Trade Agreement, as

provided in general note 12 to the HTS and implemented effective January 1, 1994 by

Presidential Proclamation 6641 of December 15, 1993. Goods must originate in the NAFTA

region under rules set forth in general note 12(t) and meet other requirements of the note and

applicable regulations.

Other special tariff treatment applies to particular products of insular possessions (general

note 3(a)(iv)), products of the West Bank and Gaza Strip (general note 3(a)(v)), goods

covered by the Automotive Products Trade Act (APTA) (general note 5) and the

Agreement on Trade in Civil Aircraft (ATCA) (general note 6), articles imported from

freely associated states (general note 10),pharmaceutical products (general note 13), and

intermediate chemicals for dyes (general note 14).

The General Agreement on Tariffs and Trade 1994 (GATT 1994), pursuant to the

Agreement Establishing the World Trade Organization, is based upon the earlier GATT 1947

(61 Stat. (pt. 5) A58; 8 UST (pt. 2) 1786) as the primary multilateral system of disciplines

and principles governing international trade. Signatories' obligations under both the 1994 and

1947 agreements focus upon most-favored-nation treatment, the maintenance of scheduled

concession rates of duty, and national treatment for imported products; the GATT also

provides the legal framework for customs valuation standards, "escape clause" (emergency)

actions, antidumping and countervailing duties, dispute settlement, and other measures. The

results of the Uruguay Round of multilateral tariff negotiations are set forth by way of

separate schedules of concessions for each participating contracting party, with the U.S.

schedule designated as Schedule XX. Pursuant to the Agreement on Textiles and

Clothing (ATC) of the GATT 1994, member countries are phasing out restrictions on

imports under the prior "Arrangement Regarding International Trade in Textiles" (known as

the Multifiber Arrangement (MFA)). Under the MFA, which was a departure from

GATT 1947 provisions, importing and exporting countries negotiated bilateral agreements

limiting textile and apparel shipments, and importing countries could take unilateral action in

the absence or violation of an agreement. Quantitative limits had been established on

imported textiles and apparel of cotton, other vegetable fibers, wool, man-made fibers or silk

blends in an effort to prevent or limit market disruption in the importing countries. The ATC

establishes notification and safeguard procedures, along with other rules concerning the

customs treatment of textile and apparel shipments, and calls for the eventual complete

integration of this sector into the GATT 1994 over a ten-year period, or by Jan. 1, 2005.

APPENDIX B

STATISTICAL TABLES AND FIGURES
B-2

Table B-1

Wood pulp: U.S. total and market capacity by State and region, 2000

Country Total Market Country Total Market

1,000 metric tons 1,000 metric tons

South: Mid-West:

Alabama .......... 6,533 1,382 Wisconsin ........... 1,785 0

Georgia ........... 6,354 1,746 Michigan ............ 1,489 279

Louisiana ......... 4,114 111 Minnesota ........... 1,288 0

South Carolina ..... 3,507 641 Ohio ............... 545 25

Mississippi ........ 2,926 1,255 Indiana ............. 95 35

North Carolina ...... 2,725 950 Iowa ............... 48 0

Florida ............ 2,723 735 Missouri ............ 19 0

Arkansas .......... 2,665 149 Regional total ........ 5,268 340

Virginia ........... 2,407 0 Percent of total ....... 9 3

Texas ............ 2,158 396

Tennessee ......... 1,767 200 North East:

Kentucky .......... 756 282 Maine .............. 1,878 456

Oklahoma ......... 699 0 Pennsylvania ......... 1,002 0

Maryland .......... 280 0 New York ........... 587 0

Delaware .......... 6 0 New Hampshire ....... 321 111

Regional total ...... 39,619 7,847 Regional total ........ 3,788 567

Percent of total ..... 71 81 Percent of total ....... 7 6

Pacific Northwest: Grand total .......... 56,159 9,779

Washington 3,677 533

Oregon 2,476 238

Montana 508 0

Idaho 413 51

California 410 203

Regional total 7,483 1,026

Percent of total 13 10

Source: 2000 Lockwood Post’s Directory, (San Francisco, Miller Freeman, Inc., 1999), pp. 37-152.

Table B-2

Regional comparison of total delivered manufacturing costs for bleached softwood kraft

Year

British Columbia Eastern United States 

Coast Interior Canada West South Finland Sweden

––––––––––––––––––––––––––––––– Dollars per metric ton –––––––––––––––––––––––––––––––

1997 .... 524 447 437 437 431 393 400

1996 .... 596 525 473 537 417 479 519

1995 .... 664 619 466 592 398 507 529

1994 .... 487 476 406 507 369 426 403

Source: Pulp & Paper, 1999 North American Factbook, (San Francisco, Miller Freeman, Inc., 1998), p. 212.
B-3

Table B-3

Market pulp: Canadian, U.S., Finnish, and Swedish manufacturing costs for bleached

softwood kraft, 1997

Year

British Columbia Eastern United States 

Coast Interior Canada West South Finland Sweden

––––––––––––––––––––––––– Dollars per metric ton ––––––––––––––––––––––––

Wood fiber ........... 171 134 179 125 159 233 210

Chemicals ........... 51 51 45 63 49 41 43

Energy .............. 37 25 23 36 24 (1) 12

Labor ............... 92 73 68 58 70 32 48

Other ............... 105 80 57 57 53 51 40

Total mill costs ....... 455 363 372 338 355 356 353

S.G. & A. ............ 14 21 20 24 11 0 8

Delivery ............. 55 61 45 74 65 37 40

Total delivered cost .... 524 447 437 437 431 393 400

Source: Pulp & Paper, 1999 North American Factbook, (San Francisco, Miller Freeman, Inc., 1998), p. 211.

Table B-4

Waste paper: U.S. consumption by grade, 1995-99

1995 1996 1997 1998 1999

 –––––––––––––––––––––– 1,000 metric tons ––––––––––––––––––––––

OCC ..................... 14,981 16,994 17,818 17,718 18,697

ONP ..................... 5,378 5,527 5,865 5,975 6,380

Mixed ..................... 4,424 4,694 4,624 5,320 5,514

Pulp substitutes ............. 2,231 2,204 2,396 2,125 2,097

High grade deinking .......... 2,725 2,757 2,681 2,856 2,892

Total .................. 29,738 32,175 33,384 33,993 35,581

Source: American Forest & Paper Association, Statistics 2000, (Oct. 2000), p. 56.
B-4

Table B-5

Wood pulp and waste paper: Mills, capacity, production, capacity utilization, exports, imports,

and apparent consumption, Canada and Mexico, 1996-2000

19961 19971 19982 19993 20003

Change

during

period

Percent

Canada:

Wood pulp:

Mills (number) ................................. 51 49 48 48 48

Capacity (1,000 metric tons) ..................... 27,908 28,089 28,291 28,347 28,247 1

Production (1,000 metric tons) ................... 24,352 24,850 23,602 25,396 26,411 8

Capacity utilization (percent) ..................... 87 88 83 90 94

Exports (1,000 metric tons) ...................... 9,852 10,187 9,895 10,801 10,847 10

Imports (1,000 metric tons) ...................... 260 268 189 168 183 -30

Apparent consumption (1,000 metric tons) ........ 14,760 14,931 13,896 14,763 15,747 7

Waste paper:

Collections .................................... 2,840 3,110 3,051 3,174 3,438 21

Exports ....................................... 568 688 577 500 650 14

Imports ....................................... 2,089 2,088 2,198 2,292 2,277 9

Apparent consumption ......................... 4,361 4,510 4,672 4,966 5,065 16

Mexico:

Wood pulp:

Mills (number) ................................. 8 8 8 8 8

Capacity (1,000 metric tons) ....................... 965 776 750 758 800 -17

Production (1,000 metric tons) ..................... 511 442 526 546 582 14

Capacity utilization (percent) ....................... 53 57 70 72 73

Exports (1,000 metric tons) ........................ 18 1 0 0 0 -100

Imports (1,000 metric tons) ........................ 385 505 448 506 455 18

Apparent consumption (1,000 metric tons) .......... 878 946 974 1,052 1,037 18

Waste paper:

Collections ...................................... 1,696 1,885 1,963 2,043 2,137 26

Exports ......................................... 0 0 0 0 0

Imports ......................................... 1,152 1,393 1,432 1,349 1,385 20

Apparent consumption ........................... 2,848 3,278 3,395 3,392 3,522 24

1 Pulp & Paper International, Vol. 40, No. 7 (July 1998), pp. 16-88.

2 Pulp & Paper International, Vol. 41, No. 7 (July 1999), pp. 10-63, and Pulp & Paper International, Vol. 41, No. 8

(Aug. 1999), pp. 29-43.

3 Pulp & Paper International, Vol. 43, No. 7 (July 2001), pp. 5-74.
B-5

Table B-6

South American wood pulp and waste paper: Mills, capacity, production, capacity utilization,

exports, imports, and apparent consumption, by major producer, 1996-2000

19961 19971 19982 19993 20003

Change

during

period

Percent

Brazil:

Wood pulp:

Mills (number) ..................................... 5 5 5 5 69

Capacity (1,000 metric tons) ......................... 7,109 7,109 7,447 7,522 7,915 11

Production (1,000 metric tons) ....................... 6,201 6,342 6,687 7,209 7,463 20

Capacity utilization (percent) ......................... 87 89 90 96 94

Exports (1,000 metric tons) .......................... 2,161 2,385 2,699 3,014 2,917 35

Imports (1,000 metric tons) .......................... 221 279 301 355 324 47

Apparent consumption (1,000 metric tons) ............ 4,261 4,236 4,289 4,550 4,870 14

Waste paper:

Collections ........................................ 2,201 2,157 2,295 2,416 2,612 19

Exports ........................................... 5 3 3 2 4 -20

Imports ........................................... 29 23 22 34 24 -17

Apparent consumption ............................. 2,225 2,177 2,314 2,448 2,632 18

Chile:

Wood pulp:

Mills (number) ..................................... 6 6 6 12 11

Capacity (1,000 metric tons) ......................... 2,600 2,600 2,350 2,587 2,674 3

Production (1,000 metric tons) ....................... 2,060 2,040 2,210 2,397 2,841 38

Capacity utilization (percent) ......................... 79 78 94 93 106

Exports (1,000 metric tons) .......................... 1,340 1,100 1,744 1,905 1,834 37

Imports (1,000 metric tons) .......................... 0 0 0 14 17

Apparent consumption (1,000 metric tons) ............ 720 940 466 506 1,024 42

Waste paper:

Collections ........................................ 50 50 233 230 235 370

Exports ........................................... 0 0 14 12 22

Imports ........................................... 0 0 2 0 18

Apparent consumption ............................. 50 50 221 218 231 362

1 Pulp & Paper International, Vol. 40, No. 7 (July 1998), pp. 16-88.

2 Pulp & Paper International, Vol. 41, No. 7 (July 1999), pp. 10-63, and Pulp & Paper International, Vol. 41, No. 8

(Aug. 1999), pp. 29-43.

3 Pulp & Paper International, Vol. 43, No. 7 (July 2001), pp. 5-74.
B-6

Table B-7

Asian wood pulp and waste paper: Mills, capacity, production, capacity utilization, exports, imports, and apparent consumption, by

major producers, 1996-2000

19961 19971 19982 19993 20003

Change

 during

period

Percent

China:

Wood pulp:

Mills (number) .............................. 5,000 5,000 5,000 5,000 5,000

Capacity (1,000 metric tons) ................... 24,500 19,750 19,750 20,000 20,000 -18

Production (1,000 metric tons) .................. 19,030 17,380 16,520 16,425 17,150 -10

Capacity utilization (percent) ................... 78 88 84 82 86

Exports (1,000 metric tons) .................... 24 25 19 13 34 42

Imports (1,000 metric tons) .................... 1,486 1,549 2,199 3,107 3,356 126

Apparent consumption (1,000 metric tons) .......... 20,492 18,904 18,700 19,519 20,472 -0

Waste paper:

Collections ............................... 9,309 9,485 12,100 12,868 13,158 41

Exports .................................. 5 4 8 5 5 0

Imports .................................. 1,486 1,713 1,915 2,555 3,563 140

Apparent consumption ....................... 10,790 11,194 14,007 15,418 16,716 55

Indonesia:

Wood pulp:

Mills (number) .............................. 13 13 14 16 14

Capacity (1,000 metric tons) ................... 2,986 3,906 4,300 4,900 5,200 74

Production (1,000 metric tons) .................. 2,560 2,979 3,430 3,695 4,089 60

Capacity utilization (percent) ................... 86 76 80 75 79

Exports (1,000 metric tons) .................... 1,127 1,186 1,357 1,179 1,493 32

Imports (1,000 metric tons) .................... 836 1,100 840 957 746 -11

Apparent consumption ....................... 2,269 2,893 2,913 3,473 3,342 47

Waste paper:

Collections ............................... 980 1,163 1,355 1,683 1,978 102

Exports .................................. 0 0 0 0 22

Imports .................................. 1,297 1,133 2,034 2,036 2,345 81

Apparent consumption ....................... 2,277 2,296 3,389 3,719 4,301 89

Japan:

Wood pulp:

Mills (number) .............................. 48 46 45 44 44

Capacity (1,000 metric tons) ................... 15,053 15,029 15,792 15,792 15,565 3

Production (1,000 metric tons) .................. 11,199 11,490 10,919 10,990 11,399 2

Capacity utilization (percent) ................... 74 76 69 70 73

Exports (1,000 metric tons) .................... 81 63 42 83 133 64

Imports (1,000 metric tons) .................... 3,420 3,450 3,204 3,078 3,096 -9

Apparent consumption ....................... 14,538 14,877 14,081 13,985 14,362 -1

Waste paper:

Collections ............................... 15,916 16,546 16,131 16,893 18,331 15

Exports .................................. 21 312 561 288 -100

Imports .................................. 431 362 294 300 278 -35

Apparent consumption ....................... 16,326 16,596 15,864 16,905 18,609 14

Korea:

Wood pulp:

Mills (number) .............................. 4 4 4 4 4

Capacity (1,000 metric tons) ................... 728 836 836 836 836 15

Production (1,000 metric tons) .................. 618 590 418 587 595 -4

Capacity utilization (percent) ................... 85 71 50 70 71

Exports (1,000 metric tons) .................... 0 0 0 3 0

Imports (1,000 metric tons) .................... 2,241 1,960 1,745 2,196 2,137 -5

Apparent consumption (1,000 metric tons) .......... 2,859 2,550 2,163 2,780 2,732 -4

Waste paper:

Collections ............................... 3,944 4,530 3,869 4,687 5,003 27

Exports .................................. 0 0 0 0 7

Imports .................................. 1,425 1,452 1,963 2,325 1,963 38

Apparent consumption ....................... 5,369 5,982 5,832 7,012 6,959 30
B-7

Table B-7—Continued

Asian wood pulp and waste paper: Mills, capacity, production, capacity utilization, exports, imports, and apparent consumption, by

major producer, 1996-2000

19961 19971 19982 19993 20003

Change

 during

period

Percent

Taiwan:

Wood pulp:

Mills (number) .............................. 2 2 2 2 2

Capacity (1,000 metric tons) ................... 420 420 420 420 420 0

Production (1,000 metric tons) .................. 326 346 339 368 385 18

Capacity utilization (percent) ................... 78 82 81 88 92

Exports (1,000 metric tons) .................... 1 3 1 14 19 1,800

Imports (1,000 metric tons) .................... 909 1,021 954 821 817 -10

Apparent consumption (1,000 metric tons) .......... 1,234 1,364 1,292 1,175 1,183 -4

Waste paper:

Collections ............................... 2,465 2,789 2,790 2,814 2,944 19

Exports .................................. 0 0 0 0 0

Imports .................................. 1,656 1,306 1,306 1,110 1,036 -37

Apparent consumption ....................... 4,121 4,095 4,096 3,924 3,980 -3

Thailand:

Wood pulp:

Mills (number) .............................. 3 3 6 6 6

Capacity (1,000 metric tons) ................... 626 626 928 950 956 53

Production (1,000 metric tons) .................. 502 572 684 756 764 52

Capacity utilization (percent) ................... 80 91 74 80 80

Exports (1,000 metric tons) .................... 131 103 216 230 255 95

Imports (1,000 metric tons) .................... 344 349 240 354 359 4

Apparent consumption (1,000 metric tons) .......... 715 818 708 880 868 21

Waste paper:

Collections ............................... 978 943 869 868 909 -7

Exports .................................. 0 0 0 2 0

Imports .................................. 582 622 725 935 952 64

Apparent consumption ....................... 1,560 1,565 1,594 1,801 1,861 19

1 Pulp & Paper International, Vol. 40, No. 7 (July 1998), pp. 16-88.

2 Pulp & Paper International, Vol. 41, No. 7 (July 1999), pp. 10-63, and Pulp & Paper International, Vol. 41, No. 8 (Aug. 1999), pp. 29-43.

3 Pulp & Paper International, Vol. 43, No. 7 (July 2001), pp. 5-74.
B-8

Table B-8

European wood pulp and waste paper: Mills, capacity, production, capacity utilization, exports, imports, and apparent consumption,

by major producer, 1996-2000

19961 19971 19982 19993 20003

Change

 during

period

Percent

Finland:

Wood pulp:

Mills (number) .............................. 45 45 45 43 43

Capacity (1,000 metric tons) ................... 12,190 12,765 13,235 13,497 13,635 12

Production (1,000 metric tons) .................. 9,693 11,089 11,355 11,581 11,910 23

Capacity utilization (percent) ................... 80 87 86 86 87

Exports (1,000 metric tons) .................... 1,551 1,739 1,645 1,889 1,676 8

Imports (1,000 metric tons) .................... 44 43 51 74 74 68

Apparent consumption (1,000 metric tons) .......... 8,186 9,393 9,761 9,766 10,308 26

Waste paper:

Collections ............................... 563 607 665 697 734 30

Exports .................................. 40 49 91 93 113 183

Imports .................................. 89 84 59 81 82 -8

Apparent consumption ....................... 612 642 633 685 703 15

France:

Wood pulp:

Mills (number) .............................. 20 20 19 19 18

Capacity (1,000 metric tons) ................... 3,327 3,300 3,290 3,200 2,900 -13

Production (1,000 metric tons) .................. 2,517 2,832 2,677 2,591 2,469 -2

Capacity utilization (percent) ................... 76 86 81 81 85

Exports (1,000 metric tons) .................... 361 445 415 469 426 18

Imports (1,000 metric tons) .................... 1,944 2,048 2,038 2,117 2,299 18

Apparent consumption (1,000 metric tons) .......... 4,100 4,435 4,300 4,239 4,342 6

Waste paper:

Collections ............................... 3,907 4,270 4,614 5,037 5,302 36

Exports .................................. 748 750 838 997 887 19

Imports .................................. 1,083 998 1,155 1,235 1,363 26

Apparent consumption ....................... 4,242 4,518 4,931 5,275 5,778 36

Germany:

Wood pulp:

Mills (number) .............................. 20 19 13 23 22

Capacity (1,000 metric tons) ................... 1,943 1,987 2,350 2,070 2,294 18

Production (1,000 metric tons) .................. 1,816 1,958 1,973 1,942 2,317 28

Capacity utilization (percent) ................... 93 99 84 94 101

Exports (1,000 metric tons) .................... 348 395 363 390 447 28

Imports (1,000 metric tons) .................... 3,637 3,842 3,820 4,143 4,320 19

Apparent consumption (1,000 metric tons) .......... 5,105 5,405 5,430 5,695 6,190 21

Waste paper:

Collections ............................... 10,912 11,279 12,164 12,904 13,570 24

Exports .................................. 2,958 2,739 3,311 3,727 3,905 32

Imports .................................. 934 918 1,064 1,130 1,327 42

Apparent consumption ....................... 8,888 9,458 9,917 10,307 10,992 24

Italy:

Wood pulp:

Mills (number) .............................. 17 16 16 16 12

Capacity (1,000 metric tons) ................... 635 635 700 700 750 18

Production (1,000 metric tons) .................. 540 548 585 577 600 11

Capacity utilization (percent) ................... 85 86 84 82 80

Exports (1,000 metric tons) .................... 18 12 13 15 20 11

Imports (1,000 metric tons) .................... 2,789 3,044 3,098 3,146 2,991 7

Apparent consumption (1,000 metric tons) .......... 3,311 3,580 3,670 3,708 3,571 8

Waste paper:

Collections ............................... 2,530 2,784 3,304 3,629 4,096 62

Exports .................................. 34 53 42 128 218 541

Imports .................................. 1,019 926 854 706 741 -27

Apparent consumption ....................... 3,515 3,657 4,116 4,207 4,619 31
B-9

Table B-8—Continued

European wood pulp and waste paper: Mills, capacity, production, capacity utilization, exports, imports, and apparent consumption,

by major producer, 1996-2000

19961 19971 19982 19993 20003

Change

 during

period

Percent

Netherlands:

Wood pulp:

Mills (number) .............................. 2 2 2 2 2

Capacity (1,000 metric tons) ................... 174 174 175 175 175 1

Production (1,000 metric tons) .................. 125 138 129 117 137 10

Capacity utilization (percent) ................... 72 79 74 67 78

Exports (1,000 metric tons) .................... 166 162 157 145 288 73

Imports (1,000 metric tons) .................... 643 659 676 692 785 22

Apparent consumption (1,000 metric tons) .......... 602 635 648 664 634 5

Waste paper:

Collections ............................... 2,056 2,150 2,540 2,525 2,653 29

Exports .................................. 1,150 1,200 1,344 1,600 1,572 37

Imports .................................. 1,100 1,100 1,070 1,451 1,895 72

Apparent consumption ....................... 2,006 2,050 2,266 2,376 2,976 48

Norway:

Wood pulp:

Mills (number) .............................. 19 18 13 14 14

Capacity (1,000 metric tons) ................... 2,835 2,605 2,797 2,679 2,668 -6

Production (1,000 metric tons) .................. 2,269 2,336 2,420 2,354 2,448 8

Capacity utilization (percent) ................... 80 90 87 88 92

Exports (1,000 metric tons) .................... 549 520 569 582 605 10

Imports (1,000 metric tons) .................... 102 137 133 155 154 51

Apparent consumption (1,000 metric tons) .......... 1,822 1,953 1,984 1,927 1,997 10

Waste paper:

Collections ............................... 367 432 453 535 535 46

Exports .................................. 182 217 219 275 247 36

Imports .................................. 47 42 53 33 63 34

Apparent consumption ....................... 232 257 287 293 351 51

Portugal:

Wood pulp:

Mills (number) .............................. 7 7 7 7 7

Capacity (1,000 metric tons) ................... 1,745 1,830 1,824 1,860 1,849 6

Production (1,000 metric tons) .................. 1,594 1,703 1,708 1,755 1,774 11

Capacity utilization (percent) ................... 91 93 94 94 96

Exports (1,000 metric tons) .................... 1,005 1,070 1,037 1,186 1,026 2

Imports (1,000 metric tons) .................... 91 106 97 107 96 5

Apparent consumption (1,000 metric tons) .......... 680 739 768 676 844 24

Waste paper:

Collections ............................... 329 362 392 433 499 52

Exports .................................. 42 55 53 84 148 252

Imports .................................. 28 15 13 15 29 4

Apparent consumption ....................... 315 322 352 364 380 21

Russia:

Wood pulp:

Mills (number) .............................. 45 45 45 35 35

Capacity (1,000 metric tons) ................... 10,500 9,500 9,500 7,600 6,000 -43

Production (1,000 metric tons) .................. 3,821 3,895 3,993 4,750 5,814 52

Capacity utilization (percent) ................... 36 41 42 63 97

Exports (1,000 metric tons) .................... 1,078 983 1,029 1,350 1,646 53

Imports (1,000 metric tons) .................... 35 49 39 66 55 57

Apparent consumption (1,000 metric tons) .......... 2,778 2,961 3,003 3,466 4,223 52

Waste paper:

Collections ............................... 600 615 615 615 615 3

Exports .................................. na na na na

Imports .................................. na na na na

Apparent consumption ....................... 600 615 615 615 615 3
B-10

Table B-8—Continued

European wood pulp and waste paper: Mills, capacity, production, capacity utilization, exports, imports, and apparent consumption,

by major producer, 1996-2000

19961 19971 19982 19993 20003

Change

 during

period

Percent

Spain:

Wood pulp:

Mills (number) .............................. 20 20 14 14 15

Capacity (1,000 metric tons) ................... 1,800 1,828 1,850 1,900 1,900 6

Production (1,000 metric tons) .................. 1,461 1,571 1,620 1,680 1,749 20

Capacity utilization (percent) ................... 81 86 88 88 92

Exports (1,000 metric tons) .................... 673 750 743 851 827 23

Imports (1,000 metric tons) .................... 494 558 566 602 664 34

Apparent consumption (1,000 metric tons) .......... 1,282 1,379 1,443 1,431 1,586 24

Waste paper:

Collections ............................... 2,125 2,354 2,634 2,964 3,318 56

Exports .................................. 43 38 53 60 104 142

Imports .................................. 692 716 815 706 660 -5

Apparent consumption ....................... 2,774 3,032 3,396 3,610 3,874 40

Sweden:

Wood pulp:

Mills (number) .............................. 46 46 46 46 45

Capacity (1,000 metric tons) ................... 10,892 11,363 11,484 11,394 11,651 7

Production (1,000 metric tons) .................. 9,847 10,497 10,549 10,694 11,517 17

Capacity utilization (percent) ................... 90 92 92 94 99

Exports (1,000 metric tons) .................... 2,628 2,802 2,787 3,018 3,066 17

Imports (1,000 metric tons) .................... 213 238 250 265 293 38

Apparent consumption (1,000 metric tons) .......... 7,432 7,933 8,012 7,941 8,744 18

Waste paper:

Collections ............................... 1,159 1,323 1,379 1,384 1,467 27

Exports .................................. 178 193 169 185 197 11

Imports .................................. 523 559 549 620 553 6

Apparent consumption ....................... 1,504 1,689 1,759 1,819 1,823 21

United Kingdom:

Wood pulp:

Mills (number) .............................. 5 5 5 5 5

Capacity (1,000 metric tons) ................... 766 779 780 564 595 -22

Production (1,000 metric tons) .................. 575 623 584 474 517 -10

Capacity utilization (percent) ................... 75 80 75 84 87

Exports (1,000 metric tons) .................... 14 5 18 23 8 -43

Imports (1,000 metric tons) .................... 1,606 1,639 1,594 1,658 1,661 3

Apparent consumption (1,000 metric tons) .......... 2,167 2,257 2,160 2,109 2,170 0

Waste paper:

Collections ............................... 4,552 5,030 5,028 4,815 5,305 17

Exports .................................. 274 446 424 443 547 100

Imports .................................. 45 34 29 62 124 176

Apparent consumption ....................... 4,323 4,618 4,633 4,434 4,882 13

1 Pulp & Paper International, Vol. 40, No. 7 (July 1998), pp. 16-88.

2 Pulp & Paper International, Vol. 41, No. 7 (July 1999), pp. 10-63, and Pulp & Paper International, Vol. 41, No. 8 (Aug. 1999), pp. 29-43.

3 Pulp & Paper International, Vol. 43, No. 7 (July 2001), pp. 5-74.
B-11

Figure B-1

Annual environmental spending of the U.S. pulp and paper industry, 1990-98

APPENDIX C

DESCRIPTION OF WASTE PAPER

RECOVERY, REUSE, AND GRADES 
 

1

 Ed Glass, “Deinked Pulp Mills Struggle with ‘More of the Same’ Contaminants,” Pulp &

Paper, Vol. 74, No. 12 (Dec. 2000), p. 44.

 

2

 Ibid., p. 43.

C-2

Repulping

Repulping separates waste paper into individual fibers. Bales of waste paper are blended

with water to a prescribed fiber/water ratio (3-16 percent). Fibers are separated by

mechanical agitation. The water may be heated if the paper has been coated or treated.

Because traditional low-consistency repulping often breaks contaminants into smaller pieces,

new methods (e.g., high-consistency batch pulping or continuous drum pulping) are being

developed that separate fibers without breaking larger contaminants into smaller ones.1

Contaminant removal

Many different nonpaper contaminants can be found in waste paper. Heavy contaminants

include metals, sand, rocks, and glass. Light contaminants include Styrofoam, plastics, waxes,

hot-melt glues, adhesives, and wood. Contaminants might also include unwanted waste paper

such as colored grades, unbleached grades, or groundwood grades. Waste paper may be

manually sorted to pick out premium material. Mechanical removal systems typically are

combinations of screens and centrifugal cleaners that remove contaminants before they are

broken into smaller pieces that are more difficult to remove. Cleaning techniques are

continuing to develop and improve. In the early 1990s laser printing posed a significant

challenge, but the techniques for its removal are now well understood. A current challenge

is to develop a technique to remove the stickies resulting from pressure sensitive adhesives

(PSAs). With the increase in the use of such products as nonlick stamps, post-it notes, and

self-sealing envelopes, PSAs are an increasing problem in all grades of waste paper2 and are

particularly difficult because they disperse but then re-agglomerate elsewhere within the

water cycle. A task force including members from USPS, mills, testing labs, stamp

manufacturers, and adhesive suppliers continues to seek solutions. 

De-inking

Inks are generally removed by one of two methods. Washing (dispersion) systems wash ink

from pulp with large amounts of water. Flotation (collector) systems are used once ink is in

suspension. Injected air creates bubbles that carry ink to the surface away from fiber.

Flotation systems are more common in North America with the onset of laser printing,

xerography, and ultraviolet cured inks. If both inks and filler are to be removed, both

processes may be used in combination. Flexographic inks favor washing systems due to high

dispersion. Dispersion devices combine thermal and mechanical energy to break residual

stickies and ink into ultrafine particles.
 

3

 Institute of Scrap Recycling Industries, Inc., Scrap Specifications Circular 198 - Guidelines

for Nonferrous Scrap, Ferrous Scrap, Glass Cullet, Paper Stock, Plastic Scrap (Washington, DC:

ISRI, 1998), pp. 34-38.

C-3

Institute of Scrap Recycling Industries - Waste Paper

Grades3

Regular Grades

1. Soft Mixed Paper

2. Mixed Paper

3. Not currently used

4. Boxboard Cuttings

5. Mill Wrappers

6. News

7. News, De-ink Quality

8. Special News De-ink Quality

9. Over-Issue News

10. Magazines

11. Corrugated Containers

12. Double Sorted Corrugated 

13. New Double-Lined Kraft Corrugated

Cuttings

14. Not currently used

15. Used Brown Kraft

16. Mixed Kraft Cuttings

17. Carrier Stock

18. New Colored Kraft

19. Grocery Bag Scrap

20. Kraft Multi-Wall Bag Scrap

21. New Brown Kraft Envelope Cuttings

22. Mixed Groundwood Shavings

23. Telephone Directories

24. White Blank News

25. Groundwood Computer Printout

26. Publication Blanks

27. Flyleaf Shavings

28. Coated Soft White Shavings

29. Not currently used

30. Hard White Shavings

31. Hard White Envelope Cuttings

32. Not currently used

33. New Colored Envelop Cuttings

34. Not currently used

35. Semi-Bleached Cuttings

36. Manila Tabulating Cards

37. Sorted Office Paper

38. Sorted Colored Ledger

39. Manifold Colored Ledger

40. Sorted White Ledger

41. Manifold White Ledger

42. Computer Printout

43. Coated Book Stock

44. Coated Groundwood Sections

45. Printed Bleached Board Cuttings

46. Misprinted Bleached Board

47. Unprinted Bleached Board

48. #1 Bleached Cup Stock

49. #2 Printed Bleached Cup Stock

50. Unprinted Bleached Plate Stock

51. Printed Bleached Plate Stock
C-4

Specialty Grades

1-S White Waxed Cup Cuttings

2-S Printed Waxed Cup Cuttings

3-S Plastic Coated Cups

4-S Polycoated Bleached Kraft-Unprinted

5-S Polycoated Bleached Kraft-Printed

6-S Polycoated Milk Carton Stock

7-S Polycoated Diaper Stock

8-S Polycoated Boxboard Cuttings

9-S Waxed Boxboard Cuttings

10-S Printed and/or Unprinted Bleached

Sulphate containing foil

11-S Waxed Corrugated Cuttings

12-S Wet Strength Corrugated Cuttings

13-S Asphalt Laminated Corrugated Cuttings

14-S Beer Carton Scrap

15-S Contaminated Bag Scrap

16-S Insoluble Glued Free Sheet Paper and/or

Board

17-S White Wet Strength Scrap

18-S Brown Wet Strength Scrap

19-S Printed and/or Colored Wet Strength

Scrap

20-S File Stock

21-S New Computer Print Out (C.P.O.)

22-S Ruled White

23-S Flyleaf Shavings containing Hot Melt

Glue

24-S Carbon Mix

25-S Books with Covers

26-S Unsorted Tabulating cards

27-S Colored Tabulating Cards

28-S Carbonless Treated Ledger (N.C.R.)

29-S Not currently used

30-S Plastic Windowed Envelopes

31-S Textile Boxes

32-S Printed TMP

33-S Unprinted TMP
APPENDIX D

DESCRIPTIONS OF CHEMICAL AND

MECHANICAL PULPING PROCESSES
 

1

 Pulp & Paper, 1999 North American Factbook, p. 139.

 

2

 Ibid., pp. 139 and 145.

D-2

Chemical Methods

Sulfate (kraft) and Soda

The soda process was the first chemical pulping process developed and is so called because

wood chips are cooked in a solution of sodium hydroxide (caustic soda) at a pH of 12. The

kraft process, commercialized in 1885, improved on the soda process with the addition of

sodium sulfide to the soda, which accelerates delignification and minimizes pH drop. The

result is a pulp of greater strength. Kraft pulping is suitable for many species, the pulps are

easily bleached, and the process is economical since the energy value of the spent cooking

liquor (black liquor) can be recovered and utilized. Disadvantages include the expense of

building mills (due to the special metals necessary to handle the temperatures, pressures, and

caustic chemicals), low yields, and odors. The kraft process represents 70 percent of all

North American pulping capacity.1

Sulfite

This process, dating from the 1870s, cooks chips in acid conditions in a solution of sulfur

dioxide in water. The sulfur dioxide combines with lignin, and both are removed by the

addition of a base (e.g. ammonium, sodium, or magnesium). Sulfite pulp is not as strong as

kraft so is not used in strength applications, but good sheet formation, softness, bulk, and

absorbency make it suited to tissue and sanitary papers, bond, and reproduction. Unbleached

sulfite, brighter than unbleached kraft, can be used where high brightness is not required.

Sulfite pulping capacity has declined since the 1930s,2 but more and more sulfite pulp is now

being bleached with oxygen, peroxide, or ozone. New alkaline sulfite technology yields pulp

that has comparable strength to kraft and that is easily bleached without chlorine compounds.

Semichemical

This process was developed in the 1920s for hardwoods, and although the pulp is lower

quality, yield is much higher (60-80 percent). Wood chips are subjected to mild chemical

treatment followed by mechanical defibrating. The pulp thus produced is characterized by

intermediate strength and good stiffness and has been widely used for corrugating medium,

the paper used for the fluted inner ply of a corrugated container.
 

3

 Young, Jim, “Solvent Pulping Symposium Looks at Current, Future Technology,” Pulp &

Paper, February 1993 found at www.paperloop.com, retrieved Aug. 15, 2001.

 

4

 Biologic Oxygen Demand.

D-3

Solvent

Solvent pulping, first patented in 1931 as the Kleinert ethanol process, replaces water in the

cooking liquor with an organic solvent.3 Generally a process for pulping hardwoods, the

industry has shown renewed interest recently in the solvent process. Its inherent advantages

include lower capital costs, operating costs comparable to kraft, easily bleached pulps, high

yield, byproduct potential (from lignins and sugars), sulfur and chlorine free operations, low

water use, and low effluent BOD4 and toxicity. One company, Repap, has developed a

proprietary process (Alcell) but has abandoned plans for further development. Disadvantages

are the lack of markets for lignin by-products, expensive construction due to the necessity

for explosion proof designs, and lack of suitable cooking schemes and bleaching sequences.

Mechanical Pulping Methods

Groundwood or stone groundwood

Typically, bolts of pulpwood are ground into fiber by large, cylindrical, rotating grindstones.

Softwood species are preferred for groundwood pulping.

Pressurized groundwood (PGW)

This process is the same as groundwood pulping except that the addition of heated shower

water softens the lignin, thereby reducing the damage to the wood fibers during separation.

Refiner mechanical (RMP)

Developed in the late 1950s, refiner mechanical pulping produces longer fibers in the

resulting pulp while decreasing its opacity to some degree. Unlike straight groundwood

pulping techniques, the pulpwood is chipped first. The chips are squeezed to remove the

water and are then ground between metal disks.

Thermomechanical (TMP)

It was discovered in the late 1960s that by presteaming chips prior to refiner mechanical

pulping, the resulting pulp would be stronger.
 

5

 A shive is a bundle of incompletely separated fibers.

D-4

Chemithermomechanical (CTMP)

In a further refinement of the process in the late 1970s, chemicals were applied to the chips

prior to refining. This refinement provided important advantages such as increased content

of longer fibers; decreased shive content;5 more flexible fibers; higher density, tensile

strength, and burst strength of the resulting sheet; and better opacity than kraft pulp. The

additional strength of CTMP pulps allows newsprint producers to cut back or forego entirely

the addition of kraft pulp. Bleached board and tissue are other important markets. Bleached

hardwood CTMP (BCTMP) can be bleached to a very high brightness using mainly

hydrogen peroxide. Disadvantages of both TMP and CTMP are lower tensile strength than

kraft, color reversion, and high energy demands.

Alkaline Peroxide Mechanical Pulping (APMP)

In 1989 this process was introduced. The bleaching and pulping stages are combined, which

decreases both the cost of mill installation and operation.

Defibrator Pulping

This process requires that chips are steamed under high pressure and released from the

steaming vessel via a gun or nozzle. The resulting pressure drop causes the chips to explode

into individual fiber masses. The process is simple, high yield, and relatively nonpolluting, but

the resulting low strength pulp is used only to make coarse grades of paper, board, and wood

products (e.g. hardboard).
APPENDIX E

DESCRIPTIONS OF PROCESS

IMPROVEMENTS AND TECHNICAL

INNOVATIONS
 

1

 “Fine-Tuned Kraft,” American Papermaker, Vol. 59 No. 3 (Mar. 1996), p. 27.

 

2

 Charles E. Swann,“Fresh Water: Can Mills Keep Turning Off the Spigot,” North American

Papermaker, Vol. 81, No. 10 (Oct. 1999), p. 28.

 

3

 Gerald W. Kutney, “Low-Cost Bleaching Sequence Changes Yield Low AOX Pulp Mill

Emissions,” Pulp & Paper, Vol. 69, No. 1 (Jan. 1995), p. 85.

E-2

Techniques to Improve Wood Pulping

‚ Development of extended digesting regimens - multiple applications of cooking liquors over

extended periods allow gentler cooking resulting in stronger, better delignified pulp.

‚ Closer monitoring and control of the chemistry of the digesting process.1

‚ Reduction in water use, increased conservation and reuse of water. The goal is total “closure”

of a mill’s water cycle, but so far, this has only been accomplished at recycled mills.2

‚ Oxygen delignification - considered a bleaching sequence but capable of extending

delignification also.

‚ Development of additives to cooking liquor - improve/preserve yields by retaining

hemicellulose, shortening cooking times.

‚ Development of biopulping - treating chips with lignin-degrading fungi before chemical pulping.

Techniques to Improve Bleaching

‚ Substitution of chlorine dioxide for elemental chlorine (elemental chlorine free or ECF

bleaching).

‚ Development of oxygen or ozone bleaching 

‚ Development of enzyme additives to reduce bleaching requirements

‚ Improvement of techniques and sequences for totally chlorine free (TCF) bleaching

‚ Development of techniques, additives (e.g., anthraquinone) to reduce adsorbable organic

halides (AOX) emissions and increase delignification.3

‚ Development of prebleaching agents for kraft pulps

‚ Elimination of all effluent from bleached plants.

Techniques to Improve Stock Preparation

‚ Development of refining techniques to roughen, shorten fibers to increase chemical bonding.

‚ Chemical additives to improve strength, sizing, pigments, fillers, drainage or retention

‚ Improved segregation, stratification of pulps to increase recycled fiber content.

‚ Improved fractionation of pulps to allow multi-ply head boxes to improve final product

performance.
E-3

Emerging Technologies to Improve the Reuse of Waste

paper

‚ Development of enzyme enhanced deinking

‚ Improvements in fiber separation and fiber bonding strength

‚ Improved removal of stickies, particularly pressure sensitive adhesives (PSA)

‚ Enhancements in reuse and recirculation of process water and recovery of fillers

APPENDIX F

SUMMARY OF PERTINENT ENVIRONMENTAL LAWS AND REGULATIONS
 

1

42 U.S.C. § 7401 et seq. (1970).

 

2

 Pulp & Paper, 1999 North American Factbook, p. 71.

 

3

33 U.S.C. § 1251 et seq. (1977). 

 

4

 Pulp & Paper, 1999 North American Factbook, p. 71.

 

5

 The final air rule amended 40 CFR Part 63 and Part 261 and the final water rule amended 40 CFR

Part 430. 63 FR 18504-18751 (April 15, 1998) and 63 FR 42238-42240 (Aug. 7, 1998).

 

6

 Charles E. Swann, “Cluster Rule Update,” International Papermaker, Vol. 58, No. 11 (Nov.

1995) p. 23.

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The Clean Air Act1

Originally passed in 1955 and wholly replaced by the Air Quality Act of 1967, this law is still

known simply as the Clean Air Act (CAA). Significant amendments were passed in 1970,

1977, and 1990.2 Its purpose is to preserve and enhance the quality of the nations’s air

resources. It identifies maximum achievable control technology (MACT) and provides for

permit systems for emissions standards for certain hazardous chemicals. A variety of

chemicals present in pulp and paper manufacturing are controlled including nitrogen and

sulfur oxides, acetone, methanol (EPA hazardous air pollutant - HAP), chlorine, chlorine

dioxide, chloroform, hydrochloric and sulfuric acids, and particulates. Methanol is the

industry’s biggest concern.

The Clean Water Act3

Although initial legislation dates to 1948, the Clean Water Act (CWA) was rewritten and

passed as the Federal Water Pollution Control Amendments of 1972. Its purpose is to restore

and maintain the chemical, physical, and biological integrity of the nation’s waters. The law

provides for a system of State-issued permits that limit the amount of pollutants released by

industrial dischargers4 and identifies best available technology (BAT). Further amendments

in 1987 and 1990 addressed persistent levels of toxic pollutants and non-point sources.

The Cluster Rule5

The Cluster Rule resulted from a court-imposed consent agreement that required EPA to

enact rules controlling dioxin and furan in the effluent of bleached pulp mills. Subsequently,

the EPA extended the rule to include the entire pulp and paper industry and conventional

pollutants as well. It represents the first attempt to address both air and water emissions in

an integrated fashion, and by attempting to reduce or eliminate pollutants at their source, it

changes the focus from emissions treatment to process modification.6 The air portion of the

rule is intended to reduce emissions of hazardous air pollutants, odorous sulfur, volatile

organic compounds, and particulate. The water portion is intended to reduce discharge of

chloroform and discharge and sludge loading of dioxin and furan. Over 4 years of debate and

revision preceded publication of the first portion of the rule on April 15, 1998. It included new
 

7

 “Cluster Rule Finalized; ECF Pulping Approved,” Pima’s North American Papermaker, Vol.

80, No. 1 (Jan. 1998), p. 28.

 

8

 Ibid.

 

9

 Charles E. Swann, “Water Chemistry: Dealing with a Cluster of Rules,” Pima’s North American

Papermaker, Vol. 80, No. 10 (Oct. 1998), p. 30.

 

10 Pulp & Paper, 1999 North American Factbook, p. 144.

 

11 Ibid., p. 78.

 

12 Ibid., p. 77.

 

13 “Final Water Quality Guidance for the Great Lakes System” amended 40 CFR 9, 122, 123, 131,

and 132. 60 FR 15365-15366 (Mar. 23, 1995).

 

14 Pulp & Paper, 1999 North American Factbook, p. 73.

F-3

air regulations based on MACT that regulate air emissions at 155 U.S. mills.7 It also included

phase I of the water quality regulations, which apply to bleached paper-grade kraft pulp mills,

soda pulp mills, and paper-grade pulp sulfite mills (96 of the 155 U.S. mills).8 Affected mills

had 3 years from the date of publishing, or until April 15, 2001, to comply with the new rule.9

As with prior regulations, water requirements are based on best available technology. The

EPA-proposed rule would have required oxygen delignification bleaching technology, but the

rule as published endorses elemental chlorine free (ECF) bleaching for most pulp mills.

Industry successfully pressed for this change arguing that requiring oxygen delignification

would lead to as many as 30 mill closures and that ECF would be just as effective in

eliminating dioxin from the effluent stream. From 1988 to 1994 the amount of dioxin

discharged into waterways by the North American industry dropped by 96 percent.10 Since

1990, there has been a twentyfold increase in ECF bleaching as individual mills moved to

remove dioxin from their effluent prior to the release of the Cluster Rule.11 Phases II and III

will include the water regulations for the pulp mills not included phase I. Compliance

deadlines for the new rules are staggered. Cost of compliance for the United States industry

may exceed $3.0 billion,12 and AF&PA has estimated additional annual operating costs of

$273 million.

Great Lakes Initiative (GLI)13

The GLI is intended to control the release of bioaccumulative, industrial chemicals,

pesticides, and metals in eight States that border the Great Lakes. The initiative limits the

release of 22 persistent toxic pollutants or bioaccumulative chemicals of concern (BCCs).

Chief among industry concerns about the GLI is the capital necessary for compliance.

AF&PA estimates the initial capital outlay to be approximately $1.25 billion and the addition

annual operating cost to be approximately $43 million.14 The industry is also concerned about

test methodologies, antidegradation measures, restrictions for pollutants in mixing zones

(intake waters), development of permits for chemicals that yet lack health and safety data.
 

15 42 U.S.C. § 6901 et seq. (1976).

 

16 7 U.S.C. § 136;16 U.S.C. § 460 et seq. (1973).

F-4

Resource Conservation and Recovery Act15

The Resource Conservation and Recovery Act (RCRA) passed in 1976 and deals with solid

waste disposal issues including hazardous waste that requires both “cradle to grave” tracking

and permits for disposal. The pulp and paper industry generates about 12 million tons per

year of dewatered primary and biological sludge that have traditionally been disposed of in

onsite landfills.

Endangered Species Act (ESA)16

First passed in 1973 and amended in 1988, the Endangered Species Act protects the Nation’s

flora and fauna. Potential impacts include reductions to the industry fiber base as lands are

withdrawn from timber production in order to protect threatened species. Threatened aquatic

species could potentially limit the use of rivers and waterways by adjacent mills.

Global Warming Treaty

Potentially significant international regulation, the Global Warming Treaty, was drafted in

Kyoto, Japan in 1997, and signed by the United States, the 39th nation to do so, in Buenos

Aires (November 1998). The treaty requires nations to reduce emissions of carbon dioxide,

but the impact to the industry is unclear. The schedules and mechanisms to meet the treaty

targets had yet to be completed, when it was announced that the United States would not

implement the agreement.