this will explain everything.....
The Christmas tree industry has tried three different times to conduct promotional programs based on voluntary contributions. Each time, after about three years, the revenue declined to a point where the programs were ineffective.
The decline in revenue is attributable to the voluntary nature of these programs. Therefore,
the proponents have determined that they need a mechanism that would be sustainable over time. They believe that a national Christmas tree research and promotion program would accomplish this goal.
http://www.federalregister.gov/artic...ion-order#p-26
if you want to shake more money out of people, you create a new governement program complete with a task force, board, mandatory fees(I guess on just the "rich" Christmas tree producers) etc...etc...