欧盟法规EUNo 1169-2011 产品标签要求

L304/18ENOfficialJournaloftheEuropeanUnion22.11.2011

REGULATION(EU)No1169/2011OFTHEEUROPEANPARLIAMENTANDOFTHECOUNCIL

of25October2011

ontheprovisionoffoodinformationtoconsumers,amendingRegulations(EC)No1924/2006and

(EC)No1925/2006oftheEuropeanParliamentandoftheCouncil,andrepealingCommission

Directive87/250/EEC,CouncilDirective90/496/EEC,CommissionDirective1999/10/EC,

Directive2000/13/ECoftheEuropeanParliamentandoftheCouncil,CommissionDirectives

2002/67/ECand2008/5/ECandCommissionRegulation(EC)No608/2004

(TextwithEEArelevance)

THEEUROPEANPARLIAMENTANDTHECOUNCILOFTHEEUROPEANUNION,

HavingregardtotheTreatyontheFunctioningoftheEuropeanUnion,andinparticularArticle114thereof,

HavingregardtotheproposalfromtheEuropeanCommission,

HavingregardtotheopinionoftheEuropeanEconomicandSocialCommittee(1),

Actinginaccordancewiththeordinarylegislativeprocedure(2),

Whereas:

(1)Article169oftheTreatyontheFunctioningoftheEuropeanUnion(TFEU)providesthattheUnionistocontributetotheattainmentofahighlevelofconsumerprotectionbythemeasuresitadoptspursuanttoArticle114thereof.

(2)Thefreemovementofsafeandwholesomefoodisanessentialaspectoftheinternalmarketandcontributessignificantlytothehealthandwell-beingofcitizens,andtotheirsocialandeconomicinterests.

(3)Inordertoachieveahighlevelofhealthprotectionforconsumersandtoguaranteetheirrighttoinformation,itshouldbeensuredthatconsumersareappropriatelyinformedasregardsthefoodtheyconsume.Consumers’choicescanbeinfluencedby,interalia,health,economic,environmental,socialandethicalconsiderations.

(1)OJC77,31.3.2009,p.81.

(2)PositionoftheEuropeanParliamentof16June2010(OJC236E,12.8.2011,p.187)andpositionoftheCouncilatfirstreadingof

21February2011(OJC102E,2.4.2011,p.1).PositionoftheEuropeanParliamentof6July2011(notyetpublishedintheOfficialJournal)anddecisionoftheCouncilof29September2011.

(4)AccordingtoRegulation(EC)No178/2002oftheEuropeanParliamentandoftheCouncilof28January2002layingdownthegeneralprinciplesandrequirementsoffoodlaw,establishingtheEuropeanFoodSafetyAuthorityandlayingdownproceduresinmattersoffoodsafety(3)itisageneralprincipleoffoodlawtoprovideabasisforconsumerstomakeinformedchoicesinrelationtofoodtheyconsumeandtopreventanypracticesthatmaymisleadtheconsumer.

(5)Directive2005/29/ECoftheEuropeanParliamentandoftheCouncilof11May2005concerningunfairbusiness-to-consumercommercialpracticesintheinternalmarket(4)coverscertainaspectsoftheprovisionofinformationtoconsumersspecificallytopreventmisleadingactionsandomissionsofinformation.Thegeneralprinciplesonunfaircommercialpracticesshouldbecomplementedbyspecificrulesconcerningtheprovisionoffoodinformationtoconsumers.

(6)UnionrulesonfoodlabellingapplicabletoallfoodsarelaiddowninDirective2000/13/ECoftheEuropeanParliamentandoftheCouncilof20March2000ontheapproximationofthelawsoftheMemberStatesrelatingtothelabelling,presentationandadvertisingoffoodstuffs(5).ThemajorityoftheprovisionslaiddowninthatDirectivedatebackto1978andshouldthereforebeupdated.

(7)CouncilDirective90/496/EECof24September1990onnutritionlabellingforfoodstuffs(6)laysdownrulesonthecontentandpresentationofnutritioninformationonprepackedfoods.Accordingtothoserules,theinclusionofnutritioninformationisvoluntaryunlessanutrition-relatedclaimismadeconcerningthefood.ThemajorityoftheprovisionslaiddowninthatDirectivedatebackto1990andshouldthereforebeupdated.

(8)Thegenerallabellingrequirementsarecomplementedbyanumberofprovisionsapplicabletoallfoodsinparticularcircumstancesortocertaincategoriesoffoods.Inaddition,thereareanumberofspecificruleswhichareapplicabletospecificfoods.

(3)OJL31,1.2.2002,p.1.

(4)OJL149,11.6.2005,p.22.

(5)OJL109,6.5.2000,p.29.

(6)OJL276,6.10.1990,p.40.

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(9)Whiletheoriginalobjectivesandthecorecomponentsofthecurrentlabellinglegislationarestillvalid,itisnecessarytostreamlineitinordertoensureeasiercomplianceandgreaterclarityforstakeholdersandtomoderniseitinordertotakeaccountofnewdevel-opmentsinthefieldoffoodinformation.ThisRegulationwillbothservetheinterestsoftheinternalmarketbysimplifyingthelaw,ensuringlegalcertaintyandreducingadministrativeburden,andbenefitcitizensbyrequiringclear,comprehensibleandlegiblelabellingoffoods.

(10)Thegeneralpublichasaninterestintherelationshipbetweendietandhealthandinthechoiceofanappro-priatediettosuitindividualneeds.TheCommissionWhitePaperof30May2007onaStrategyforEuropeonNutrition,OverweightandObesityrelatedhealthissues(the‘CommissionWhitePaper’)notedthatnutritionlabellingisoneimportantmethodofinformingconsumersaboutthecompositionoffoodsandofhelpingthemtomakeaninformedchoice.TheCommissionCommunicationof13March2007entitled‘EUConsumerPolicystrategy2007-2013—Empoweringconsumers,enhancingtheirwelfare,effectivelyprotectingthem’underlinedthatallowingconsumerstomakeaninformedchoiceisessentialbothtoeffectivecompetitionandconsumerwelfare.Knowledgeofthebasicprinciplesofnutritionandappro-priatenutritioninformationonfoodswouldcontributesignificantlytowardsenablingtheconsumertomakesuchaninformedchoice.Educationandinformationcampaignsareanimportantmechanismforimprovingconsumerunderstandingoffoodinformation.

(11)Inordertoenhancelegalcertaintyandensurerationalityandconsistencyofenforcement,itisappropriatetorepealDirectives90/496/EECand2000/13/ECandtoreplacethembyasingleregulationwhichensurescertaintyforconsumersandotherstakeholdersandreducestheadministrativeburden.

(12)Forthesakeofclarity,itisappropriatetorepealandincludeinthisRegulationotherhorizontalacts,namelyCommissionDirective87/250/EECof15April1987ontheindicationofalcoholicstrengthbyvolumeinthelabellingofalcoholicbeveragesforsaletotheultimateconsumer(1),CommissionDirective1999/10/ECof

8March1999providingforderogationsfromtheprovisionsofArticle7ofCouncilDirective79/112/EECasregardsthelabellingoffoodstuffs(2),CommissionDirective2002/67/ECof18July2002onthelabellingoffoodstuffscontainingquinine,andoffoodstuffscontainingcaffeine(3),CommissionRegulation(EC)No608/2004of31March2004concerningthelabellingoffoodsandfoodingredientswithaddedphytosterols,phytosterolesters,phytostanolsand/orphytostanolesters(4)andCommissionDirective2008/5/ECof30January2008concerningthe

(1)OJL113,30.4.1987,p.57.

(2)OJL69,16.3.1999,p.22.

(3)OJL191,19.7.2002,p.20.

(4)OJL97,1.4.2004,p.44.

compulsoryindicationonthelabellingofcertainfoodstuffsofparticularsotherthanthoseprovidedforinDirective2000/13/ECoftheEuropeanParliamentandoftheCouncil(5).

(13)Itisnecessarytosetcommondefinitions,principles,requirementsandproceduressoastoformaclearframeworkandacommonbasisforUnionandnationalmeasuresgoverningfoodinformation.

(14)Inordertofollowacomprehensiveandevolutionaryapproachtotheinformationprovidedtoconsumersrelatingtofoodtheyconsume,thereshouldbeabroaddefinitionoffoodinformationlawcoveringrulesofageneralandspecificnatureaswellasabroaddefinitionoffoodinformationcoveringinformationprovidedalsobyothermeansthanthelabel.

(15)Unionrulesshouldapplyonlytoundertakings,theconceptofwhichimpliesacertaincontinuityofactivitiesandacertaindegreeoforganisation.Operationssuchastheoccasionalhandlinganddeliveryoffood,theservingofmealsandthesellingoffoodbyprivatepersons,forexampleatcharityevents,oratlocalcommunityfairsandmeetings,shouldnotfallwithinthescopeofthisRegulation.

(16)FoodinformationlawshouldprovidesufficientflexibilitytobeabletokeepuptodatewithnewinformationrequirementsofconsumersandensureabalancebetweentheprotectionoftheinternalmarketandthedifferencesintheperceptionofconsumersintheMemberStates.

(17)Theprimeconsiderationforrequiringmandatoryfoodinformationshouldbetoenableconsumerstoidentifyandmakeappropriateuseofafoodandtomakechoicesthatsuittheirindividualdietaryneeds.Withthisaim,foodbusinessoperatorsshouldfacilitatetheaccessibilityofthatinformationtothevisuallyimpaired.

(18)Inordertoenablefoodinformationlawtoadapttoconsumers’changingneedsforinformation,anyconsiderationsabouttheneedformandatoryfoodinformationshouldalsotakeaccountofthewidelydemonstratedinterestofthemajorityofconsumersinthedisclosureofcertaininformation.

(19)Newmandatoryfoodinformationrequirementsshouldhoweveronlybeestablishedifandwherenecessary,inaccordancewiththeprinciplesofsubsidiarity,propor-tionalityandsustainability.

(5)OJL27,31.1.2008,p.12.

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(20)Foodinformationlawshouldprohibittheuseofinformationthatwouldmisleadtheconsumerinparticularastothecharacteristicsofthefood,foodeffectsorproperties,orattributemedicinalpropertiestofoods.Tobeeffective,thatprohibitionshouldalsoapplytotheadvertisingandpresentationoffoods.

(21)Inordertopreventafragmentationoftherulesconcerningtheresponsibilityoffoodbusinessoperatorswithrespecttofoodinformationitisappropriatetoclarifytheresponsibilitiesoffoodbusinessoperatorsinthisarea.ThatclarificationshouldbeinaccordancewiththeresponsibilitiesregardingtheconsumerreferredtoinArticle17ofRegulation(EC)No178/2002.

(22)Alistshouldbedrawnupofallmandatoryinformationwhichshouldinprinciplebeprovidedforallfoodsintendedforthefinalconsumerandmasscaterers.ThatlistshouldmaintaintheinformationthatisalreadyrequiredunderexistingUnionlegislationgiventhatitisgenerallyconsideredasavaluableacquisinrespectofconsumerinformation.

(23)Inordertotakeaccountofchangesanddevelopmentsinthefieldoffoodinformation,provisionsshouldbemadetoempowertheCommissiontoenablecertainparticularstobemadeavailablethroughalternativemeans.Consul-tationwithstakeholdersshouldfacilitatetimelyandwell-targetedchangesoffoodinformationrequirements.

(24)Whenusedintheproductionoffoodsandstillpresenttherein,certainingredientsorothersubstancesorproducts(suchasprocessingaids)cancauseallergiesorintolerancesinsomepeople,andsomeofthoseallergiesorintolerancesconstituteadangertothehealthofthoseconcerned.Itisimportantthatinformationonthepresenceoffoodadditives,processingaidsandothersubstancesorproductswithascientificallyprovenallergenicorintoleranceeffectshouldbegiventoenableconsumers,particularlythosesufferingfromafoodallergyorintolerance,tomakeinformedchoiceswhicharesafeforthem.

(25)Inordertoinformconsumersofthepresenceofengineerednanomaterialsinfood,itisappropriatetoprovideforadefinitionofengineerednanomaterials.Takingintoaccountthepossibilityoffoodcontainingorconsistingofengineerednanomaterialsbeinganovelfood,theappropriatelegislativeframeworkforthatdefi-nitionshouldbeconsideredinthecontextoftheupcomingreviewofRegulation(EC)No258/97oftheEuropeanParliamentandoftheCouncilof27January1997concerningnovelfoodsandnovelfoodingredients(1).

(1)OJL43,14.2.1997,p.1.

(26)Foodlabelsshouldbeclearandunderstandableinordertoassistconsumerswhowanttomakebetter-informedfoodanddietarychoices.Studiesshowthateasylegibilityisanimportantelementinmaximisingthepossibilityforlabelledinformationtoinfluenceitsaudienceandthatillegibleproductinformationisoneofthemaincausesofconsumerdissatisfactionwithfoodlabels.Therefore,acomprehensiveapproachshouldbedevelopedinordertotakeintoaccountallaspectsrelatedtolegibility,includingfont,colourandcontrast.

(27)Inordertoensuretheprovisionoffoodinformation,itisnecessarytoconsiderallwaysofsupplyingfoodtoconsumers,includingsellingfoodbymeansofdistancecommunication.Althoughitisclearthatanyfoodsuppliedthroughdistancesellingshouldmeetthesameinformationrequirementsasfoodsoldinshops,itisnecessarytoclarifythatinsuchcasestherelevantmandatoryfoodinformationshouldalsobeavailablebeforethepurchaseisconcluded.

(28)ThetechnologyusedinthefreezingoffoodshasdevelopedsignificantlyduringrecentdecadesandhasbecomewidelyusedbothtoimprovethecirculationofgoodsontheUnioninternalmarket,andtoreducefoodsafetyrisks.However,thefreezingandlaterdefrostingofcertainfoods,especiallymeatandfisheryproducts,limitstheirpossiblefurtheruseandmayalsohaveaneffectontheirsafety,tasteandphysicalquality.Conversely,forotherproducts,especiallybutter,freezinghasnosucheffects.Therefore,whereaproducthasbeendefrosted,thefinalconsumershouldbeappropriatelyinformedofitscondition.

(29)Theindicationofthecountryoforiginoroftheplaceofprovenanceofafoodshouldbeprovidedwheneveritsabsenceislikelytomisleadconsumersastothetruecountryoforiginorplaceofprovenanceofthatproduct.Inallcases,theindicationofcountryoforiginorplaceofprovenanceshouldbeprovidedinamannerwhichdoesnotdeceivetheconsumerandonthebasisofclearlydefinedcriteriawhichensurealevelplayingfieldforindustryandimproveconsumers’understandingoftheinformationrelatedtothecountryoforiginorplaceofprovenanceofafood.Suchcriteriashouldnotapplytoindicationsrelatedtothenameoraddressofthefoodbusinessoperator.

(30)Insomecases,foodbusinessoperatorsmaywanttoindicatetheoriginofafoodonavoluntarybasistodrawconsumers’attentiontothequalitiesoftheirproduct.Suchindicationsshouldalsocomplywithharmonisedcriteria.

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(31)Theindicationoforiginiscurrentlymandatoryforbeefandbeefproducts(1)intheUnionfollowingthebovinespongiformencephalopathycrisisandithascreatedconsumerexpectations.TheimpactassessmentoftheCommissionconfirmsthattheoriginofmeatappearstobeconsumers’primeconcern.ThereareothermeatswidelyconsumedintheUnion,suchasswine,sheep,goatandpoultrymeat.Itisthereforeappropriatetoimposeamandatorydeclarationoforiginforthoseproducts.Thespecificoriginrequirementscoulddifferfromonetypeofmeattoanotheraccordingtothechar-acteristicsoftheanimalspecies.Itisappropriatetoprovidefortheestablishmentthroughimplementingrulesofmandatoryrequirementsthatcouldvaryfromonetypeofmeattoanothertakingintoaccounttheprincipleofproportionalityandtheadministrativeburdenforfoodbusinessoperatorsandenforcementauthorities.

(32)Mandatoryoriginprovisionshavebeendevelopedonthebasisofverticalapproachesforinstanceforhoney(2),fruitandvegetables(3),fish(4),beefandbeefproducts(5)andoliveoil(6).Thereisaneedtoexplorethepossibilitytoextendmandatoryoriginlabellingforotherfoods.ItisthereforeappropriatetorequesttheCommissiontopreparereportscoveringthefollowingfoods:typesofmeatotherthanbeef,swine,sheep,goatandpoul-trymeat;milk;milkusedasaningredientindairyproducts;meatusedasaningredient;unprocessedfoods;single-ingredientproducts;andingredientsthatrepresentmorethan50%ofafood.Milkbeingoneoftheproductsforwhichanindicationoforiginisconsideredofparticularinterest,theCommissionreportonthisproductshouldbemadeavailableassoonaspossible.Basedontheconclusionsofsuchreports,theCommissionmaysubmitproposalstomodifytherelevantUnionprovisionsormaytakenewinitiatives,whereappropriate,onasectoralbasis.

(33)TheUnion’snon-preferentialrulesoforiginarelaiddowninCouncilRegulation(EEC)No2913/92of

12October1992establishingtheCommunityCustomsCode(7)anditsimplementingprovisionsinCommissionRegulation(EEC)No2454/93of2July1993layingdownprovisionsfortheimplementationofCouncil

(1)Regulation(EC)No1760/2000oftheEuropeanParliamentandoftheCouncilof17July2000establishingasystemfortheidentifi-cationandregistrationofbovineanimalsandregardingthelabellingofbeefandbeefproducts(OJL204,11.8.2000,p.1).

(2)CouncilDirective2001/110/ECof20December2001relatingtohoney(OJL10,12.1.2002,p.47).

(3)CommissionRegulation(EC)No1580/2007of21December2007layingdownimplementingrulesofCouncilRegulations(EC)No2200/96,(EC)No2201/96and(EC)No1182/2007inthefruitandvegetablesector(OJL350,31.12.2007,p.1).

(4)CouncilRegulation(EC)No104/2000of17December1999onthecommonorganisationofthemarketsinfisheryandaquacultureproducts(OJL17,21.1.2000,p.22).

(5)Regulation(EC)No1760/2000.

(6)CommissionRegulation(EC)No1019/2002of13June2002on

marketingstandardsforoliveoil(OJL155,14.6.2002,p.27).

(7)OJL302,19.10.1992,p.1.

Regulation(EEC)No2913/92establishingtheCommunityCustomsCode(8).Determinationofthecountryoforiginoffoodswillbebasedonthoserules,whicharewellknowntofoodbusinessoperatorsandadministrationsandshouldeasetheirimplementation.

(34)Thenutritiondeclarationforafoodconcernsinformationonthepresenceofenergyandcertainnutrientsinfoods.Themandatoryprovisionofnutritioninformationonpackagingshouldassistnutritionactionsaspartofpublichealthpolicieswhichcouldinvolvetheprovisionofscientificrecommen-dationsfornutritioneducationforthepublicandsupportinformedfoodchoices.

(35)Tofacilitatethecomparisonofproductsindifferentpackagesizes,itisappropriatetoretaintherequirementthatthemandatorynutritiondeclarationshouldreferto

100gor100mlamountsand,ifappropriate,toallowadditionalportion-baseddeclarations.Therefore,wherefoodisprepackedandindividualportionsorconsumptionunitsareidentified,anutritiondeclarationperportionorperconsumptionunit,inadditiontotheexpressionper100gorper100ml,shouldbeallowed.Furthermore,inordertoprovidecomparableindicationsrelatingtoportionsorconsumptionunits,theCommissionshouldbeempoweredtoadoptrulesontheexpressionofthenutritiondeclarationperportionorperconsumptionunitforspecificcategoriesoffood.

(36)TheCommissionWhitePaperhighlightedcertainnutri-tionalelementsofimportancetopublichealthsuchassaturatedfat,sugarsorsodium.Therefore,itisappro-priatethattherequirementsonthemandatoryprovisionofnutritioninformationshouldtakeintoaccountsuchelements.

(37)SinceoneoftheobjectivespursuedbythisRegulationistoprovideabasistothefinalconsumerformakinginformedchoices,itisimportanttoensureinthisrespectthatthefinalconsumereasilyunderstandstheinformationprovidedonthelabelling.Thereforeitisappropriatetouseonthelabellingtheterm‘salt’insteadofthecorrespondingtermofthenutrient‘sodium’.

(38)IntheinterestofconsistencyandcoherenceofUnionlawthevoluntaryinclusionofnutritionorhealthclaimsonfoodlabelsshouldbeinaccordancewiththeRegulation(EC)No1924/2006oftheEuropeanParliamentandoftheCouncilof20December2006onnutritionandhealthclaimsmadeonfoods(9).

(8)OJL253,11.10.1993,p.1.

(9)OJL404,30.12.2006,p.9.

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(39)Toavoidunnecessaryburdensonfoodbusinessoperators,itisappropriatetoexemptfromthemandatoryprovisionofanutritiondeclarationcertaincategoriesoffoodsthatareunprocessedorforwhichnutritioninformationisnotadeterminingfactorforconsumers’purchasingdecisions,orforwhichthepackagingistoosmalltoaccommodatethemandatorylabellingrequirements,unlesstheobligationtoprovidesuchinformationisprovidedforunderotherUnionrules.

(40)Takingintoaccountthespecificnatureofalcoholicbeverages,itisappropriatetoinvitetheCommissiontoanalysefurthertheinformationrequirementsforthoseproducts.Therefore,theCommissionshould,takingintoaccounttheneedtoensurecoherencewithotherrelevantUnionpolicies,produceareportwithin3yearsoftheentryintoforceofthisRegulationconcerningtheapplicationoftherequirementstoprovideinformationoningredientsandnutritioninformationtoalcoholicbeverages.Inaddition,takingintoaccounttheresolutionoftheEuropeanParliamentof5September2007onanEuropeanUnionstrategytosupportMemberStatesinreducingalcohol-relatedharm(1),theopinionoftheEuropeanEconomicandSocialCommittee(2),theworkoftheCommission,andgeneralpublicconcernaboutalcohol-relatedharmespeciallytoyoungandvulnerableconsumers,theCommission,afterconsultationwithstakeholdersandtheMemberStates,shouldconsidertheneedforadefi-nitionofbeveragessuchas‘alcopops’,whicharespecificallytargetedatyoungpeople.TheCommissionshouldalso,ifappropriate,proposespecificrequirementsrelatingtoalcoholicbeveragesinthecontextofthisRegulation.

(41)Toappealtotheaverageconsumerandtoservetheinformativepurposeforwhichitisintroduced,andgiventhecurrentlevelofknowledgeonthesubjectofnutrition,thenutritioninformationprovidedshouldbesimpleandeasilyunderstood.Tohavethenutritioninformationpartlyintheprincipalfieldofvision,commonlyknownasthe‘frontofpack’,andpartlyonanothersideonthepack,forinstancethe‘backofpack’,mightconfuseconsumers.Therefore,thenutritiondeclarationshouldbeinthesamefieldofvision.Inaddition,onavoluntarybasis,themostimportantelementsofthenutritioninformationmayberepeatedintheprincipalfieldofvision,inordertohelpconsumerstoeasilyseetheessentialnutritioninformationwhenpurchasingfoods.Afreechoiceastotheinformationthatcouldberepeatedmightconfuseconsumers.Thereforeitisnecessarytoclarifywhichinformationmayberepeated.

(42)Inordertoencouragefoodbusinessoperatorstoprovideonavoluntarybasistheinformationcontainedinthe

(1)OJC187E,24.7.2008,p.160.

(2)OJC77,31.3.2009,p.81.

nutritiondeclarationforfoodss