Printing of Books: Domestic mills or imports? Contract or MoU?

For the upcoming academic year, over 30 crore free textbooks will need to be printed, requiring approximately 80,000 tons of paper. But where will that paper come from—domestic mills or imports from abroad? This question has created a complex tug-of-war. With arguments over protecting domestic industry, the pressure to deliver books on time, legal obligations, and bitter past experiences with commission-based rackets, a deadlock has emerged among the Education Ministry, the NCTB, paper mill owners, and printing businesses. Ultimately, the government is moving toward signing a Memorandum of Understanding (MoU) instead of a mandatory contract. However, this solution has not yet been accepted by all parties.

On one side, domestic paper mill owners want to effectively block the path of paper imports to protect their industry. On the other hand, printers argue that complete reliance on domestic mills will leave the risk of artificial crises and price hikes. Caught in the middle, the National Curriculum and Textbook Board (NCTB) is trying to navigate legal complications and find a way to print books on time.

According to multiple sources, several rounds of meetings have been held among the Education Ministry, the NCTB, the Bangladesh Paper Mills Association, and the Bangladesh Printers Association to resolve this crisis, but no final consensus has been reached. In the latest meeting, held last Saturday under the chairmanship of the Secretary of the Secondary and Higher Education Division, a preliminary decision was made to sign an MoU instead of a binding contract. However, this has also sparked fresh disagreements.

Responsible sources at the NCTB said that the board's panel lawyers opined during the meeting that involving the NCTB in a binding contract between paper mills and printers could conflict with the Public Procurement Rules (PPR). Under existing laws, the NCTB has direct contracts only with printing establishments; there is no clear legal basis to bring paper mills under the same contract. Following that opinion, the in-principle decision was made to pursue an MoU instead of a contract.

But even here, new complications have arisen. Paper mill owners want the NCTB to sign the MoU as a direct witness. However, the NCTB is unwilling to do so due to fears of being dragged into legal complications in the future. Their position is that, if necessary, the concerned ministry could act as a third party—not the board.

NCTB officials say that such caution stems from the bitter experience of last year. In 2024, following the political regime change, the tender for printing free textbooks was cancelled and new bids were invited, causing the entire printing process to be stalled for a long time. As a result, many students did not receive their books on time at the start of the year. At the same time, a severe paper shortage hit the market, and the price per ton of paper soared from Tk 1,05,000 to around Tk 1,45,000.

At that time, in the interest of printing books quickly, the government waived the 28% import duty on paper and art card and allowed the import of 10,000 tons of paper. However, allegations arose that the paper brought from China through a company named Union Associates was sold to various printers at Tk 25,000–30,000 more per ton, despite the duty exemption. This led to allegations of a commission racket worth nearly Tk 29 crore.

For this reason, the NCTB does not want to enter into a binding contract involving any third party this time. Officials say that if a new legal risk arises, the responsibility will ultimately fall on the board. So they are leaning towards a consensus-based MoU.

Meanwhile, to sustain the domestic paper industry while ensuring timely book delivery, the government has proposed a compromise. According to the proposal, of the required 80,000 tons of paper, 60,000 tons will be sourced from domestic mills and the remaining 20,000 tons will be imported from abroad.

At a meeting held on July 13, chaired by Education Minister A N M Ehsanul Haque Milon, paper mill owners demanded that the government is, on one hand, providing duty exemptions on virgin pulp imports, and on the other, allowing paper imports from abroad. This, they argue, will gradually destroy the domestic industry. Therefore, they have demanded a complete halt to foreign paper imports.

On the other hand, the printers' stance is completely different. Their complaint is that every year, as the book printing season begins in November–December, many domestic mills create an artificial crisis to drive up paper prices. Hence, it is essential to keep the option of imports open as an alternative. They also stated that several large presses have already opened LCs for paper imports. They believe that the proposal to sell paper at the same price to everyone would be financially detrimental to the larger establishments.

On this issue, the Education Minister told Agamir Somoy that the government's goal is to both deliver books to students on time and protect domestic industry. That is why the proposal to import 20,000 tons of paper and source 60,000 tons from domestic mills has been put forward. He said there will be an understanding among paper mills, printers, and the NCTB, specifying who will supply how much paper and when. A separate committee will also work to determine paper prices considering market conditions. If anyone violates the understanding, the government will take necessary action.

However, although three more rounds of discussions took place after the Education Minister's meeting, no final decision has been reached yet on the framework of the tripartite understanding. The discussions are repeatedly stalling over questions of legal validity and accountability.

NCTB legal officials say there is a fundamental difference between a contract and an MoU. A contract is legally binding; it includes provisions for penalties and legal action in case of any breach. An MoU, however, is essentially a written record of mutual understanding, which has no legal binding or obligation. Now the question is, if a paper mill fails to honor the contract for any reason after signing, whom will the NCTB punish? Can the NCTB take action only against the printers, or can the supplying mills also be held accountable? There is still no clear answer to this question.

Meanwhile, the book printing contract for this year has included strict conditions for printers. It states that negligence in printing books could be considered a seditious act.

Secondary and Higher Education Division Secretary Abdul Khaleq said, "Whether it's a contract or an MoU—we want everyone to remain committed."

NCTB Chairman Professor Mohammad Fakhrul Maula said that a preliminary decision to sign an MoU was made at the meeting chaired by the Secretary.

Meanwhile, printers are claiming that although Chinese paper costs Tk 7,000–10,000 more per ton, its usage is more efficient. According to them, since Chinese paper rolls typically weigh 540–550 kg, machines can run continuously for longer periods, and paper wastage drops by up to 10%. Additionally, the quality variation in 70 GSM paper is only 1–2%, which is internationally acceptable. In contrast, this variation in domestic paper is as high as 8–10%, causing various issues in printing and binding.

Sources say that although there are 119 registered paper mills in the country, the number capable of producing paper to the NCTB's specified quality standards is very limited. Consequently, when demand for textbooks, notebooks, and guidebooks surges simultaneously in November–December, it becomes difficult for domestic mills alone to meet the full demand. Added to this are reliance on imported virgin pulp, the dollar crisis, LC complexities, and seasonal demand spikes. As a result, nearly every year, the book printing season faces paper shortages and price hikes.
Domestic mills are capable of supplying textbook paper

Domestic paper mill owners claim that the paper required for printing textbooks can be produced domestically, and therefore, there is no justification for importing paper at this time. Accordingly, the Bangladesh Paper Mills Association (BPMA) has sent a letter to the National Board of Revenue (NBR). The association's secretary, A.K.M. Nowsherul Alam, recently wrote to the NBR Chairman, demanding that the minimum assessable value for imported paper be set at USD 945 per metric ton to protect domestic industry, preserve employment, and ensure government revenue collection. At the same time, the organization has demanded a ban on the import of printing paper matching the NCTB-specified specifications—29.5-inch rolls, 20 or 30 sheets, and 70 or 80 GSM off-white natural shade.

Mohammad Yearul Islam Biddut, Senior General Manager (Marketing) of Meghna Pulp and Paper Mills, stated that the country's paper mills are fully capable of producing the amount of paper needed for printing textbooks. He said they have clearly raised this issue in meetings with the Education Minister and the Education Secretary.

Yerul Islam further claimed that there are around 30 registered writing and printing paper mills in the country, with an annual production capacity of 16 lakh tons, whereas the demand is only 9 lakh tons. Despite this surplus capacity, many mills have invested heavily and imported large amounts of pulp specifically for NCTB requirements. If paper is now imported from abroad, these mills would face severe financial risk.

The BPMA also claims that due to cheap imports, 80 paper mills in the country have already shut down, and another 26 mills are at risk of closure. As a result, the employment of nearly 10 lakh workers and employees has become uncertain. Additionally, the government is losing revenue and new investment is being discouraged. The paper industry is not just a manufacturing sector—it is one of the foundational pillars for many industries, including education, publishing, pharmaceuticals, food, packaging, and ready-made garments. Therefore, if this industry weakens, it will have a negative impact on investment and employment. At the same time, it will create the risk of increased import dependency in the future. If under-invoicing is stopped, fair taxation is ensured, healthy competition is guaranteed, and necessary policy support is provided, the domestic paper industry will not only meet domestic demand but will also be able to play an important role as an export-oriented industry in the future.