I imagine the people who own the land (ie. farmers) don’t have an interest in it because there isn’t an established industry to process it into products like cloth or rope or paper. This means they would have to buy the equipment not only to harvest / plant but also to process into usable material. If there was a pulp factory that would buy it from them they might plant it, but I doubt that any existing pulp factory would buy it as they would probably have to modify their production process slightly to make it into paper. Essentially it’s the chicken and the egg problem of farmers don’t have a market to sell it to, and factories can’t buy enough to justify converting the production process to use the new material.