Communication from the Commission to the Council and the European Parliament on innovative and sustainable forest-based industries in the EU - A contribution to the EU's growth and jobs strategy {SEC(2008) 262}
Date: 2008-02-27
Institutions: European Commission
Subjects: competition, innovation, pulp and paper industry, sustainable development, wood industry

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COMMISSION OF THE EUROPEAN COMMUNITIES 

Brussels, 27.2.2008 
COM(2008) 113 final 

COMMUNICATION FROM THE COMMISSION TO THE COUNCIL AND THE 
EUROPEAN PARLIAMENT 

on innovative and sustainable forest-based industries in the EU 

A contribution to the EU's Growth and Jobs Strategy 

{SEC(2008) 262} 

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TABLE OF CONTENTS 

1. 

2. 

3. 

3.1. 

3.2. 

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

New Challenges for the EU Forest-based Industries ................................................... 3 

An integrated approach to enhance the EU Forest-based industries' sustainable 
competitiveness ............................................................................................................ 6 

Overall Aims ................................................................................................................ 6 

Actions to improve the competitiveness of the EU Forest-based industries................ 7 

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1. 

INTRODUCTION 

The industries producing  pulp, paper,  paper packaging and  the  woodworking industries like 
sawmills  and  wood-based  panels  have  common  denominators  in  their  main  raw  materials: 
wood or recovered paper and wood. Hence the concept of “forest-based industries” is applied. 
It also includes specialised sectors such as cork and the printing industry. In the value chain 
from  forest  to  end  use  products,  the  competitiveness  of  intermediate  production  phases 
benefits the other steps in the production process. For example, a competitive forestry output 
enhances wood and paper industries competitiveness. 

The forest-based industries, with a production value of € 365 billion, and an added value of 
around  €  120  billion  have  more  than  3  million 
these industries play an essential role in maintaining sustainable employment in rural areas. 

jobs  in  344  000  enterprises.  Many  parts  of 

Forest-based industries in the EU are generally competitive, having a very good technical and 
commercial  performance.  The  pulp  and  paper,  woodworking  and  printing  sectors  are  world 
leaders in many areas. However, the sector is facing a number of challenges, in particular as 
regards the access to raw materials, the need to reduce greenhouse gas emissions, innovation, 
trade  and  information  of  forest-based  products.  Additionally,  for  the  woodworking  and 
printing sectors, the SME dimension is very relevant. 

This Communication on the competitiveness, innovation and sustainability of the forest-based 
industries  is  a  further  step  in  implementing  EU  industrial  policy  strategy  outlined  in  the 
Commission’s  communication  of  October  20051,  announcing  several  sectoral  initiatives, 
including a communication on these industries. 
The actions proposed are complementary to the Forest Action Plan2, which the Commission 
adopted  in  June  2006,  and  its  objective  to  improve  the  long-term  competitiveness  of  the 
forest-based  sector.  They  have  been  the  subject  of  a  public  consultation  and  have  been 
reviewed  by  the  Advisory  Committee  on  Community  Policy  regarding  Forestry  and  Forest-
based Industries. 

2. 

a) 

NEW CHALLENGES FOR THE EU FOREST-BASED INDUSTRIES 

Access to raw materials 

Since  forest-based  industries  use  large  quantities  of  wood,  its  availability  at  a  competitive 
price is a determining factor for their performance. Wood is the highest cost for many of these 
industries.  In  paper  making  more  than  30  %  of  total  costs  are  for  wood;  in  the  sawmill 
industry 65 to 70%. Therefore, it is very important to promote domestic supply and to avoid 
restrictions in the import of wood.  

The wood raw material base for the forest-based industries is renewed through replanting and 
natural regeneration in forests. There is potential to increase domestic wood supply through 
the framework of sustainable forest management3. Wood markets must work efficiently and 
the  supply  should  be  increased  through  active  participation,  including  forest  owners.  At  the 
same  time,  it  is  important  to  facilitate  trade  in  wood  raw  materials,  as  roundwood  imports 
comprise about 10 % of the total wood supply to the EU forest-based industries.  

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COM(2005) 474 final 
COM(2006) 302 final 
as  defined  by  the  Ministerial  Conference  for  the  Protection  of  Forests  in  Europe  Resolutions  from 
Lisbon and Vienna on Sustainable Forest Management 

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With  the  rising  pressure  on  primary  raw  materials,  the  use  of  recovered  raw  materials 
continuously increases. Today, about half of the EU paper production is based on recovered 
paper,  which  means  a  growth  of  25%  since  1998.  Paper  recovery  and  recycling,  linked  to 
increased  processing  efficiency,  have  allowed  substantial  production  increase  without  using 
more new wood. A partnership of paper manufacturing, converting and recycling industries, 
publishers, printers and makers of inks and glues4 aims to further increase the paper recycling 
rate  and  improve  the  quality  and  recyclability  of  recovered  paper.  More  efficient  collection 
promoted  by  public  authorities  will  also  reinforce  the  development  of  more  economically 
efficient  and  environmentally  friendly  activities,  and  contribute  to  strengthening  EU 
competitiveness  in  this  field.  Many  wood  panels,  in  particular  particleboard  and  medium 
density  fibreboard,  can  be  made  from  recovered  wood.  However,  wood  is  not  recovered  as 
much as paper, due to its longer-term use and more dispersed disposal. 

Furthermore,  the  increasing  competition  for  wood  as  a  raw  material  has  to  be  taken  into 
account in different policy contexts, such as wood for renewable energy, biodiversity needs, 
recreation and other social functions. The growing demand for renewable energy continues to 
increase  competition  for  wood,  especially  in  the  wood  panel  and  pulp  sectors.  Increased 
demand is not always matched by a corresponding supply increase, thereby leading to higher 
costs. In response to the European Council of March 2007, the Commission's proposal of 23 
January 2008 on the promotion of renewable energies5 addresses this issue. It fully recognises 
that  biomass  is  not  only  used  for  the  production  of  renewable  energies,  but  also  for  other 
purposes and calls upon Member States and the Commission to pay attention to the different 
uses in the national action plans and the general monitoring and reporting. 

Illegal  logging  and  associated  processing  and  trade  of  wood  products  undermine  legitimate 
forest-based industries and livelihoods by creating environmental and social problems as well 
as  under-cutting  prices  and  creating  a  poor  sectorial  image.  The  EU  FLEGT  (Forest  Law 
Enforcement, Governance and Trade) Action Plan addresses these concerns through supply- 
and demand-side measures. 

b) 

Impact of climate change policies 

A sustainable and efficient forest policy enhances the contribution of forests to the reduction 
of greenhouse gases. In addition, paper and wood products provide additional storage for the 
carbon  removed  by  forests  and  increased  paper  and  wood  recycling,  rather  than  landfilling, 
prolongs the capacity of wood products to retain carbon. 

At the same time, the EU's climate change policies have an important impact on pulp, paper 
and some wood panel production as a consequence of their energy-intensive processes. Fuel 
and electricity represent between 13 and 18% of the manufacturing cost in EU pulp and paper. 
Paper mills are big energy consumers, but chemical pulp mills can be net energy producers. 
About half of the primary energy used is produced by these industries from wood biomass. In 
sawmills  and  wood  panels  there  is  also  high-energy  self-sufficiency  for  heat,  though 
electricity  often  comes  from  external  suppliers.  Conversely,  mechanical  pulp  and  paper 
production are largely dependent on external electricity and gas. The recent increases in their 
prices had a significant impact on these industries. 

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European Declaration on Paper Recovery 
COM (2008)19 final 

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Reasons  for  higher  price  levels  include  higher  primary  fuel  costs,  the  need  to  contribute  to 
reductions  in  greenhouse  gas  emissions  and  the  development  of  renewable  energy  sources6. 
High  costs  challenge  industry  competitiveness  and  reinforce  the  need  for  further  market 
liberalisation and energy efficiency policies, so as to make Europe a more attractive place for 
the sector to invest in. The third energy package7 from September 2007 for a competitive and 
efficient electricity and gas market in the EU is an important contribution. 

As  large  emitters  of  CO2  the  forest-based  industries  will  be  required  to  make  a  major 
contribution to climate change mitigation. These industries must achieve high environmental 
performance and energy efficiency without losing competitiveness. It is not in the interest of 
the European Union that in the future production moves to countries with less strict emissions 
limits  (“carbon  leakage”)  as  this  would  have  negative  environmental  and  economic 
consequences.  For  this  reason,  the  Commission's  climate  action  and  renewable  energy 
package  of  23  January  20088  recognises  and  addresses  the  specific  situation  of  energy-
intensive  industries.  The  package  sets  out  clear  criteria  for  identifying  the  energy-intensive 
industries that are exposed to the risk of carbon leakage. The Commission will determine the 
sectors or sub-sectors that fall within this category; they shall be allocated allowances free of 
charge up to 100 percent under consideration of most efficient techniques. In this context, the 
Commission will assess whether forest-based industries qualify for such treatment. In light of 
international negotiations of a global climate change agreement for the period post 2012, the 
Commission will further assess the situation of energy-intensive industries and might propose 
adjustments in particular in terms of free allocation or inclusion of imported products in the 
Community's Emission Trading Scheme.  

Sectoral  agreements  based  on  industry-specific  conditions  can  stimulate  action  in  reducing 
emissions at the international level. Such sectoral agreements should lead to global emissions 
reductions  of  the  magnitude  required  to  effectively  address  climate  change,  and  should  be 
monitorable, verifiable and subject to mandatory enforcement arrangements.  

Today  and  increasingly  in  the  future,  forest-based  industries  will  play  an  important  role  as 
providers of heat and electricity as well as producers of wood-based biofuels, contributing to 
more  efficient  use  of  wood  for  both  energy  and  forest  products.  Biofuels  can  be  produced 
along with wood-based chemicals and other products in bio-refineries. The work of the Bio-
refinery  Task  Force  of  the  Forest-based  Technology  Platform  is  important  to  define  key 
projects needed in this field. The industry has the experience, technology and supply chain to 
be part of the renewable energy solution. 

c) 

Innovation and R&D 

Increased investments in RTD and innovative use of technical and commercial know-how are 
necessary elements to further develop the competitiveness of these industries.  

The Forest-based Sector Technology Platform (FTP) is an important instrument to coordinate 
research efforts by industry, the European Commission and Member States and should play a 
significant  role  in  strengthening  the  sector’s  innovative  capacity.  The  FTP  has  developed  a 
Strategic  Research  Agenda  that  aims  to  increase  the  EU´s  competitiveness  by  developing 
innovative products and services as well as improving raw material and energy efficiency. 

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COM(2006)841 final  
COM(2007)528, COM(2007)529, COM(2007)530, COM(2007)531, COM(2007)532 
In particular COM (2008) 16 final 

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The  pulp,  paper  and  wood  industries  have  gained  from  technical  developments  in  the 
chemical industry. A similar synergy also exists within the machinery and the pulp and paper 
industries. Such advantageous cluster relationships should remain. 

d) 

Trade and co-operation with third countries 

Most parts of the forest-based industries face international competition. The number of pulp, 
paper and panel producers, sawmillers and printers competing on the global market is steadily 
increasing. The forest-based chain has been adapting to this situation by focusing on enhanced 
of productivity and investments in product development, innovation and research. Many EU 
firms are global players.  

Nevertheless, EU wood and paper products still lack a level playing field for access to third 
country  markets  as  a  result  of  high  tariffs  and  non-tariff  barriers  applied  by  some  trade 
partners.  

e) 

Communication and information 

Demand for printing and packaging papers has been increasing for a long time, closely related 
to  per-capita  income  growth.  In  many  markets  paper  and  printing  industries  face  increasing 
competition  from  inter  alia  electronic  media,  leading  to  some  overcapacity.  Electronic  and 
printed  products  can  also  complement  each  other.  Paper  packaging  faces  increased 
competition, mostly from plastics.  

Per-capita  demand  for  wood  products  is  far  lower  in  the  EU  than  either  North  America  or 
Japan,  a  major  factor  being  that  wood-framed  housing  is  less  prevalent.  However,  there  is 
huge scope for growth in this area beyond the traditional regions.  

There is a general need to improve information on forests and forest-based industries and on 
the qualities of forest products. Professional users as well as consumers need to be informed 
about  the  economic,  technical  and  environmental  characteristics  of  wood,  a  renewable, 
recyclable and climate-friendly raw material.  

3. 

AN  INTEGRATED  APPROACH  TO  ENHANCE  THE  EU  FOREST-BASED  INDUSTRIES' 
SUSTAINABLE COMPETITIVENESS 

3.1. 

Overall Aims 

Within EU Industrial Policy and its Sustainable Development Strategy, which aim at creating 
better framework conditions for manufacturing industries, forest-based industries serve as an 
example of a sector very much in step with the evolution of EU policies. These industries are 
steadily modernising, putting knowledge and innovation to good effect, so as to consolidate 
their sustainability while meeting competitiveness challenges.  
Due  to  their  raw  material  dependence,  their  role  in  climate  change  mitigation  and  energy 
supply  and  their  high  energy  intensity,  the  Commission’s  integrated  energy  and  climate 
change package of 23 January 2008 has direct relevance to these industries. 

Thus,  the  following  policy  objectives  ensure  a  coherent  approach  for  strengthening  the 
competitiveness  of  the  forest-based  industries,  while  integrating  climate  change  and  energy 
objectives into the sector’s industrial strategy: 

•  harnessing  the  competences  in  related  sectors,  and  continuing  to  support  a  high  level  of 

innovation and RTD. 

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•  contributing to sustainable energy supply and promoting sustainable forest management.  

•  Promoting sustainable raw material supply while ensuring fair competition. 

•  Further improving resource efficiency in the use of raw material. 

•  Facilitating  forest-based  industries'  full  participation  in  markets  for  renewable  energy 

sources and, supplying heat, electricity and wood-based bio-fuels.  

3.2. 

Actions to improve the competitiveness of the EU Forest-based industries 

a) 

Access to raw materials 

•  A  sustainable  supply  of  wood  raw  material  to  the  forest-based  industries  should  be 
facilitated, better matching supply and demand. The supply of wood raw material for the 
industry  as  well  as  for  the  energy  sector  can  be  enhanced  through  an  active  sustainable 
forest management policy. Logistical relations between forest owners and industry have to 
be improved to expand supply.  

•  The possible gap between supply and demand could be mitigated if the total forest area and 
wood volume could be further increased through afforestation, reforestation and enhanced 
mobilisation. 

•  Further  market  development  for  recovered  paper  and  wood  should  be  encouraged, 
including  further  broadening  of  industry  participation,  aiming  to  increase  the  use  of 
recovered paper and wood. 

•  Member  States  and  industry  should  promote  cost-efficient  solutions  with  separate 

collection systems for used paper and wood products. 

•  It  is  important  to  encourage  industry’s  further  engagement  to  reduce  illegal  logging  and 
related trade in illegal timber products9. Sustainable forest management should be further 
encouraged,  e.g.  using  forest  management  certification  or  equivalent  schemes  and 
integrated chain-of-custody procedures that allow consumers to discriminate positively in 
favour of products from sustainable and legal sources. 

•  The use of forest resources for different purposes should be balanced. The Commission's 
proposal on the promotion of renewable energies10 therefore fully recognises that biomass 
is not only used for the production of renewable energies, but also for other purposes and 
thus calls upon Member States and the Commission to pay attention to the different uses in 
the national action plans and the general monitoring and reporting. 

Actions 

1. Member States, industry and  forest owners are encouraged, within the framework of the 
national forest programmes and similar measures and in line with the Forest Action Plan, to 
facilitate  and  promote  afforestation,  reforestation  and  active  sustainable  forest  management 
in  order  to  contribute  to  mitigate  climate  change  and  restore  biodiversity  while  increasing 
wood supply. 

2.  In  coordination  with  the  Standing  Forestry  Committee  ad-hoc  working  group  on 

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The  Beverage  Carton  Manufacturers  have  adopted  in  July  2007  a  Commitment  to  achieve  100% 
traceability of all wood used in their manufacture worldwide.  
COM (2008)19 final 

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mobilisation, the Advisory Committee on Forestry and Forest-based Industries will explore 
additional  solutions,  besides  mobilisation,  to  the  possible  gap  between  supply  and  demand 
for wood. 

3.  The  Advisory  Committee  on  Community  Policy  regarding  Forestry  and  forest-based 
industries will follow the development of markets and collection systems for recovered paper 
in  order  to  provide  advice  to  further  promote  and  extend  cost-efficient  and  good  quality 
collection systems. 

4.  To  increase  the  recovery  level  for  wood  products,  the  Commission  will  launch  a  study 
identifying  solutions  to  improve  the  collection  procedures  and  stimulating  recovery  among 
consumers and producers. 

5. A Round Table with industries, timber importers and distributors of forest-based products 
and other relevant stakeholders will be set up under the Advisory Committee on Forestry and 
forest-based industries to develop further private sector measures such as codes of conduct to 
exclude the trade and use of illegally harvested timber and products, in line with the FLEGT 
Action Plan. 

6. Industries and forest owners are encouraged to undertake initiatives to help prevent illegal 
logging  and  promote  sustainable  forest  management.  Their  initiatives  in  the  areas  of 
certification and equivalent schemes, as well as labelling are encouraged. 

7.  The  Commission  and  Member  States  will  clarify  the  application  of  public  procurement 
Directives  for  wood  and  paper  products  through  an  exchange  of  ideas  and  experiences 
concerning national public procurement criteria for legal and sustainable timber. 

8. Member States and the Commission are called upon to pay attention to the different uses 
of  biomass  when  developing  the  national  action  plans  and  in  the  context  of  general 
monitoring and reporting on renewable energies. 

b) 

Climate change policies and environmental legislation 

•  Forests and forest-based industries have a strategic role in climate change mitigation that 

should be strengthened.  

•  Carbon  storage  in  harvested  wood  products  can  extend  the  carbon  sequestration  benefits 
provided by forests; their role in mitigating climate change should thus be developed.  

•  The effects of climate change policies and the emissions trading system on some parts of 
the  pulp  and  paper  industry  are  important.  Such  policies  can  stimulate  innovation  and 
convey the necessary economic signals to achieve a low-carbon and sustainable economy 
most cost-effectively, while providing an incentive for other large emitting countries to set 
up ambitious emission reduction measures as of 2012, too. The Commission's proposal of 
23 January on a revision of the EU Emission Trading Scheme provides for the necessary 
measures, which now need to be prepared.. 

•  Community  environment  legislation  applying  to  the  forest-based  industries  should  be 
based  on  the  principle  of  sustainable  active  use  of  forest  resources  and  production 
processes, based on Best Available Techniques, while leaving room for flexible solutions. 

•  The  Directive  on  Integrated  Pollution  Prevention  and  Control  (IPPC)  and  the  related 
Reference  Documents  have  played  an  important  role  in  the  development  of  emissions 
prevention  and  control  measures 
industries.  A  consistent 
the 
implementation of this Directive by Member States is an important element for sustainable 
production in the EU. In the Commission proposal for a Directive on Industrial Emissions, 

forest-based 

in 

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merging IPPC and related sectoral Directives, “Best Available Techniques” and “Emerging 
Techniques”, crucial to reconcile sustainability and competitiveness, are strengthened. 

Actions 

9. The advantages and challenges of proposing to include carbon storage in harvested wood 
products  as  a  supplementary  element  in  the  international  negotiations  regarding  climate 
change policies beyond 2012 will be explored. 

10. The Commission will explore, together with stakeholders and third countries, the role of 
sectoral  agreements  that  should  lead  to  global  emissions  reductions  of  the  magnitude 
required  to  effectively  address  climate  change,  and  should  be  monitorable,  verifiable  and 
subject 
include  best  practice 
methodologies related to data collection and key performance indicators. 

to  mandatory  enforcement  arrangements.  This  will 

11.  The  Commission  will  prepare  the  measures  set  out  in  its  climate  action  and  renewable 
energy  package  of  23  January  2008  on  energy-intensive  industries,  in  particular  the 
determination of sectors or sub-sectors concerned by carbon leakage and of the appropriate 
allocation.  In  this  context,  the  Commission  will  assess  whether  forest-based  industries 
qualify  for  such  treatment.  In  light  of  international  negotiations  of  a  global  climate  change 
agreement  for  the  period  post  2012,  the  Commission  will  further  assess  the  situation  of 
energy-intensive  industries  and  might  propose  adjustments  in  particular  in  terms  of  free 
allocation or inclusion of imported products in the Community's Emission Trading Scheme. 

12. In the Commission’s review of the pulp and paper Reference Document, the industry will 
be  invited  to  contribute  to  the  information  exchange.  Attention  should  be  paid  to  identify 
flexible technical solutions and facilitate consistent implementation by Member States. 

c) 

Innovation and R&D 

•  The level of knowledge, innovation and RTD within the forest-based industries should be 

enhanced as well as the information about the characteristics of wood products. 

•  The Strategic Research Agenda of the Forest-based Sector Technology Platform integrates 
a coherent approach for research priorities covering the whole value-chain from wood and 
secondary  raw  material  to  manufacturing  in  the  pulp  and  paper  and  in  the  woodworking 
industries.  

•  The sector could benefit from cluster approaches facilitating a close cooperation between 
businesses, research communities and end users, offering a platform to overcome resource 
limitations due to the fragmented structure of industry and contributing to improve SMEs 
innovation and growth potential.  

•  The  growth  and  job  potential  of  these  industries  provides  particular  opportunities  for  the 
development of less developed, rural and peripheral regions of the EU where many related 
specialised skills are often concentrated.  

Actions 

13. Member States and industry should consider the Strategic Research Agenda in their RTD 
programmes  and  make  adequate  provision  for  education  and  training  in  the  forest-based 
sector. 
14.  The  forest-based  industries  will  have  opportunities  within  the  EU  7th  Framework 
Programme. In particular, methods for production of bio-fuels and bio-based chemicals from 

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wood  and  increased  efficiency  using  new  and  recovered  fibre  and  solid  wood  will  be 
encouraged,  as  well  as  products  and  process  development  for  packaging,  printing  and 
construction. 

15. Member States and regions are encouraged to adopt and develop the “cluster” concept to 
enhance existing and create new competitive synergies in the forest value chain, especially 
for  SMEs.  The  Competitiveness  and  Innovation  Programme  on  transnational  cluster 
cooperation and development of cluster strategies at sectorial level can support this. 

16.  Cohesion  Policy  support  during  2007-2013  will  assist  the  improvement  of  sector 
competitiveness  and  sustainability,  particularly  in  the  most  disadvantaged  EU  regions. 
Supported  activities  will  include,  e.g.  investments  in  developing  of  renewable  energy 
technologies or improving RTD and innovation capacities. 

d) 

Trade and co-operation with third countries 

•  Access to raw materials and a level playing field in external trade are essential elements for 

ensuring a proper framework and environment for EU firms to compete worldwide. 

•  Progress on minimum international requirements in the areas of environmental protection 
and health & safety would contribute to a more balanced global framework for European 
players. 

•  Standardisation  facilitates  trade  of  wood  and  paper  products.  Under  the  Construction 
Products Directive11 harmonised European product standards permit equitable assessment 
across  the  EU  of  the  technical  performance  of  building  products,  including  those  of 
domestic and imported wood.  

•  Co-operation  with  third  countries  on  standards  for  wood  construction  products  is  also 
important, especially those with expanding demand for high quality wood products. Thus, 
third countries may also recognise European standards. 

Action 

17.  The  Commission  will  continue  its  efforts  to  establish  and  implement  a  market  access 
strategy coherent with its growth and jobs and sustainable development objectives, ensuring 
access to raw materials internationally and supporting the elimination of tariff and non-tariff 
barriers. 

18.  The  Commission  will  launch  a  dialogue  with  interested  third  countries  to  address 
technical, regulatory and related issues. 

e) 

Communication and information 

•  Communication  and  image  represent  important  factors  contributing  to  forest-based 
industries  competitiveness.  Knowledge  levels  on  forest  products  and  forest-based 
industries should be improved. 

•  Communication measures supported and implemented by the industry sector are essential 

to highlight the characteristics s of the forest-based sector. 

•  Public-sector institutions, universities and industry can contribute to analysis of and 

building knowledge on these industries. 

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Directive 89/106/EEC  

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Action 

19. Member States, regional authorities, academic and educational institutions will be invited 
to cooperate within multinational networks in order to examine and ensure the follow-up of 
long-term changes in the forest-based industries. 

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