By February 1, 1983, the commissioner, with the assistance of the agricultural experiment station of the University of Minnesota, shall submit a plan to the legislature on the benefits and costs of making the nursery and tree improvement program in this chapter self-supporting. The plan shall include, but not be limited to, at least the following elements:
(a) tree species and stand improvement;
(b) adoption of a seed certification system;
(c) development of specialized seed tree orchards;
(d) implementation of modern nursery techniques;
(e) contractual arrangements with users of tree seedlings; and
(f) an economic analysis of surcharges and user fees that would make the nursery and tree improvement program self-supporting.