EN   EN 
 
 
 EUROPEAN  
COMMISSION   
Brussels, 21.4.2023  
COM(2023) 201 final  
2023/0105 (COD)  
 
Proposal for a  
DIRECTIVE OF THE EUROPEAN PARLIAMENT AND OF THE COUNCIL  
amending Council Directives 2001/110/EC relating to honey, 2001/112/EC relating to 
fruit juices and certain similar products intended for human consumption, 2001/113/EC 
relating to fruit jams, jellies and marmalades and sweetened chestnut purée intended fo r 
human consumption, and 2001/114/EC relating to certain partly or wholly dehydrated 
preserved milk for human consumption  
{SEC(2023)  162 final}  - {SWD(2023)  97 final}  - {SWD(2023)  98 final}   EN 1  EN EXPLANATORY MEMORANDUM  
1. CONTEXT  OF THE  PROPOSAL  
• Reasons for and objectives of the proposal  
The so -called ‘Breakfast Directives’ are a set of seven  Directives1 that lay down common 
rules on the composition, sales name, labelling and presentation of certain foodstuffs so as to 
protect the interests of consumers and to ensure the free movement of these products within 
the internal market. They operate in a similar way as the marketing standards laid down for 
certain agricultural products in accordance with Regulation (EU) No 1308/2013 of the 
European Parliament and of the Council of 17 December 2013 establishing a common 
organisation of the markets in a gricultural products and repealing Council Regulations (EEC) 
No 922/72, (EEC) No 234/79, (EC) No 1037/2001 and (EC) No 1234/20072, as they contain 
technical descriptions of agricultural products, their composition, characteristics and the 
production method s used.  
Products for which such common rules are laid down may be marketed under the respective 
sales designations only if they conform to those rules. The use of these sales designations is 
normally of significant commercial value as consumers recognise t hem and decide on their 
purchases relying on them.  
Outdated rules may impede innovation or fail to meet consumer expectations. In such 
circumstances, rules require adaptation. The current Breakfast Directives are more than ten 
years old. Over the last deca de, the markets for foodstuffs have evolved significantly, driven 
by innovation but also changing societal concerns and consumers’ demand. Therefore, it is 
appropriate to undertake a revision of certain rules of the Breakfast Directives.  
This revision is a lso carried out against the backdrop of the Commission’s Farm to Fork 
Strategy3 and the UN’s Sustainable Development Goals (Section 6.1). In the Farm to Fork 
Strategy, it was announced that the revision of Union marketing standards, which is 
understood to cover the Breakfast Directives due to their similarity with  marketing standards , 
would aim to provide for the uptake and supply of sustainable products. Moreover, the 
Commission also undertook to seek opportunities to facilitate the shift to healthier diets4 and 
                                                 
1 Directive 1999/4/EC of the European Parliament and of the Council of 22 February 1999 relating to 
coffee extracts and chicory extracts  (OJ L 66, 13.3.1999,  p. 26 ). 
Directive 2000/36/EC of the European Parliament and of the Council of 23 June 2000 relating to cocoa 
and chocolate products intended for human consumption  (OJ L 197, 3.8.2000, p. 19 ). 
Council Directive 2001/110/EC of 20 December 2001 relating to honey ( OJ L 10, 12.1.2002, p. 47 ). 
 Council Directive 2001/111/EC of 20 December 2001 relating to certain sugars intended for human 
consumption  (OJ L 10, 12.1.2002, p. 53 ). 
Council Directive 2001/112/EC of 20 December 2001 relating to fruit juices and cert ain similar 
products intended for human consumption  (OJ L 10, 12.1.2002, p. 58 ). 
 Council Directive 2001/113/EC of 20 December 2001 relating to fruit jams, jellies and marmalades and 
sweetened chestnut purée intended for human consumption  (OJ L 10, 12.1.20 02, p. 67 ). 
Council Directive 2001/114/EC of 20 December 2001 relating to certain partly or wholly dehydrated 
preserved milk for human consumption  (OJ L 15, 17.1.2002, p. 19 ). 
2 OJ L 347, 20.12.2013, p. 671.  
3 Communication from the Commission to the European Parliament, the Council, the European 
Economic and Social Committee and the Committee of the Regions A Farm to Fork Strategy for a fair, 
healthy and environmentally -friendly food system, COM/2020/381 final.  
4 This includes reducing the intake of f ree sugars in diets, as demonstrated in EFSA scientific opinion on 
the tolerable upper intake level for dietary sugars of 28 February 2022 
https://www.efsa.europa.eu/en/efsajournal/pub/7074 . Free sugars comprise added sugars as well as 
sugars naturally occurring in fruit jui ce and concentrated fruit juice whose structure has been broken 
down . Jellies are a product produced from fruit juice and sugar.  EN 2  EN stimulate product reformulation, notably for foods high in fat, sugars a nd salt. Finally, to 
empower consumers to make informed and sustainable food choices, the Commission also 
announced that it would consider to propose the extension of mandatory origin or provenance 
indications to certain products, while fully taking into a ccount impacts on the internal market.  
Furthermore, as regards in particular Directive 2001/110/EC, conclusions of the Presidency of 
the Council on front -of-pack nutrition labelling, nutrient profiles and origin labelling  of 15/16 
December 20205 refers to Member States’ calls at the Agriculture and Fisheries Council to 
revise that Directive with the aim to specify the countries of origin of the honey used in honey 
blends, and calls upon the Commission to start working on a legislative proposal to amend the 
Directive accordingly. The European Parliament, in its resolution of 20 October 2021 on a 
farm to fork strategy for a fair, healthy and environmentally -friendly food system6 also calls 
on the Commission to propose legislative changes for honey labelling ru les that will result in 
better consumer information.  
In light of the above, the Breakfast Directives, notably Council Directive 2001/110/EC of 20 
December 2001 relating to honey, Council Directive 2001/112/EC of 20 December 2001 
relating to fruit juices an d certain similar products intended for human consumption, Council 
Directive 2001/113/EC of 20 December 2001 relating to fruit jams, jellies and marmalades 
and sweetened chestnut purée intended for human consumption and Council Directive 
2001/114/EC of 20 December 2001 relating to certain partly or wholly dehydrated preserved 
milk for human consumption, should be revised.  
• Consistency with existing policy provisions in the policy area  
Each of the four Directives concerned by this proposal are stand -alone l egislative acts 
regulating the products concerned. While the general food law rules apply unless otherwise 
provided in the Directives, there are no other legislative  provisions directly concerning the 
aspects regulated in these Directives for honey, fruit juices and certain similar products, fruit 
jams, jellies and marmalades and sweetened chestnut purée or certain partly or wholly 
dehydrated preserved milk..  
• Consistency with other Union policies  
The revision contributes to the other actions under the Far m to Fork Strategy and Europe’s 
Beating Cancer Plan7, which aim to promote more sustainab le and healthy diets. It is coherent 
with the forthcoming revision of Regulation (EU) No 1169/2011 of the European Parliament 
and of the Council8 on food information to consumers as regards origin and nutrition 
labelling. It also aims to be complementary to the announced proposal for a legislative 
framework for sustainable food systems.  
                                                 
5 Agriculture and Fisheries Council, 15/1 6 December 2020 (14048/20).  
6 2020/2260(INI).  
7 Communication from the Commission to the European Parliament and the Council Europe's Beating 
Cancer Plan, COM/2021/44 final.  
8 Regulation (EU) No 1169/2011 of the European Parliament and of the Council of 25  October 2011 on 
the provision of food information to consumers, amending Regulations (EC) No 1924/2006 and (EC) 
No 1925/2006 of the European Parliament and of the Council, and repealing Commission Directive 
87/250/EEC, Council Directive 90/496/EEC, Commis sion Directive 1999/10/EC, Directive 2000/13/EC 
of the European Parliament and of the Council, Commission Directives 2002/67/EC and 2008/5/EC and 
Commission Regulation (EC) No 608/2004 (OJ L 304, 22.11.2011, p. 18).  EN 3  EN 2. LEGAL  BASIS,  SUBSIDIARITY  AND  PROPORTIONALITY  
• Legal  basis  
Article 37 of the Treaty establishing the European Community (Amsterdam consolidated 
version) is the legal basis of the four Directives subject to this revision. Article 43 TFEU is 
the corresponding legal basis for amending those Directives.  
• Subsidiarit y (for non-exclusive  competence)   
The Treaty on the Functioning of the European Union provides that the competence for 
agriculture is shared between the Union and the Member States.  
Union legislation on marketing standards for agricultural products, includ ing the Breakfast 
Directives, has for many products replaced heterogeneous pre -existing national standards . The 
harmonisation of the laws of the Member States relating to the products covered by the four 
Breakfast Directive was justified by the fact that differences between national laws relating to 
the products concerned could result in conditions of unfair competition likely to mislead 
consumers, and thereby have a direct effect on the functioning of the internal market . In light 
of the implications for t he internal market, individual Member States could not  sufficiently 
address the issue through national standards.  
While Union marketing standards, including the Breakfast Directives, have successfully 
achieved their intended objectives, there is a need to amend them to address new needs, 
problems and issues that have emerged since the adoption of the acts, such as sustainability 
considerations. This proposal to amend four Breakfast Directives consist mainly of updating 
requirements and product definitions  and therefore does not substantially modify the 
repartition of competence between the Union and Member States as set out by the amended 
legislation . 
In particular, o n origin labelling for honey, as stated in recital 5 of Directive 2001/110/EC 
Directive, con sumers have the right to know the geographical origin  of honey . Among others, 
various types of honey are produced on the basis of different plants and trees. Environmental, 
geographical and climate conditions may affect the product characteristics of the honey 
produced in various parts of the world. Blending honeys of different geographic origins also 
affect these characteristics. As a result, there is a  close link between the product 
characteristics and quality of honey and its origin . To ensure that cons umers are properly 
informed of the characteristics and quality of the honey they consume, it is indispensable that 
full information on those matters be available so that consumer s are not misled . Therefore,  the 
Directive currently applicable  requires the c ountry or countries where the honey has been 
harvested to be indicated on the label. However, it also provides the possibility to replace the 
list of countries of origin of the honey by one of the following, as appropriate: ‘blend of E U 
honeys’, ‘blend of non-EU honeys’, ‘blend of E U and non -EU honeys’.  The lack of 
harmonisation of EU standards has resulted in differences in labelling of honeys across the 
Union that may mislead consumers and hinder the functioning of the internal market. For 
example, operat ors importing honey blends to be packed in a Member State that requires the 
individual list of countries may not know the specific countries of origin of the honey. Taking 
into account the close link between the quality of honey and its origin, and in ligh t of the 
Farm to Fork Strategy’s objective of strengthening consumers in making informed choice, 
including on the origin of their food , and the need to improve the functioning of the internal 
market, it is appropriate to harmonise the rules on origin label ling and remove the possibility 
not to list the country or countries o f origin where the honey originates in more than one 
country . EN 4  EN Furthermore, in the absence of a Union common rules on the reduction of naturally -occurring 
sugar in fruit juices, the quali ty and authenticity (i.e. the fact that the naturally -occurring sugar 
was indeed removed by a specific process, and not  through  water dilution or using juice of 
unripen fruit) of these beverages would not be harmonised across the Union. As such products 
will become increasingly available on the Union market, there is a need to set a Union legal 
framework to facilitate their free circulation among the Member States, while maintain ing the 
protection of the interests of consumers as regards fruit juices (i.e. avoid confusion) and 
ensur ing both  effective and fair competition for operators and the quality and integrity of 
these reduced -sugar fruit juices, because of the process that can affect the characteristics of 
the product.  
Finally, the Directive on dehydrat ed preserved milk should incorporate a treatment to produce 
lactose -free milk products, in order to respond to evolving consumer needs; and the English 
term ‘evaporated milk’ should be aligned with international standards . 
• Proportionality  
For each of the  main proposed amendments to the four Breakfast Directives concerned, the 
approach taken does not exceed what is appropriate and necessary to achieve the objectives 
pursued.  
On origin labelling for honey, the proposed amendment is aimed at ensuring that ho ney may 
move freely within the internal market and that, in view of the close link between the quality 
of honey and its origin, full information on the origin of honey is available for consumers. 
While replacing the list of individual countries with a refe rence to a blend may reduce the 
burden for operators, it is not adequate to ensure that full information on the origin of honey is 
available for consumers. In addition, as the obligation to list all individual countries where the 
honey originates, without the possibility to replace the individual names by the reference to a 
blend, is already a requirement in several Member States, this rule may have misled 
consumers and hindered the functioning of the internal market. Thus, removing the possibility 
not to l ist the country or countries o f origin where the honey originates in more than one 
country is a proportionate approach to achieve the objectives pursued.  
As regards reduced -sugar fruit juices, the approach taken is to create a new category of 
products and to set the bar for sugar reduction at the same level as the one laid down in 
Regulation (EC) No 1924/2006  of the European Parliament and of the Council9 on nutrition 
claims for sugar reduction  claims  (minimum 30  %), so as to ensure coherence between these 
two legal frameworks  and avoid confusion for the consumers, even though , for this new 
category of products,  ‘reduced -sugar ’ is not a nutrition claim but part of the product name per 
se. In addition, the final products will need all the other essential phys ical, chemical, 
organoleptic and nutritional characteristics , which are necessary to ensure that the consumers 
are offered a quality product.  
As regards jams, approaches that would change the amount of sugar (i.e. lowering the 
minimum amount of sugar or re moving the minimum sugar amount) would have had more 
drawbacks than advantages. Changing the threshold for the minimum amount of sugar needed 
in jams for proper preservation, consistency and mouthfeel has consequences. First, it is very 
complicated from a technical  point of view as it requires to find a new appropriate level at 
which the jam will still jellify with the appropriate type and amount of pectins. Second, it  
would have a significant economic impact and a non -negligible environmental impact  (i.e. 
creation of additional food waste because the jams have a shorter shelf -life, more water need 
                                                 
9 Regulation (EC) No 1924/2006 of the Eu ropean Parliament and of the Council of 20 December 2006 on 
nutrition and health claims made on foods  (OJ L 404, 30.12.2006, p. 9 ). EN 5  EN to be used because more pectins are added, and the additional water content still would need 
to be evaporated and pasteurisation would take longer, both of which require additional 
energy consumption) . Lowering the minimum threshold for the amount of sugar would also 
prevent the industry from marketing jam with a reduced sugar level in accordance with 
Regulation (EC) No 1924/2006 on nutritional claims, because it w ould no longer be 
technically possible  to produce such type of jams . Hence, the approach to allow the continued 
use of the sales designation ‘jam’ and ‘jelly’ only for products with a higher minimum fruit 
content than currently required  is the most appropriate option. This approach also does not 
prevent the industry from continuing to market jam with a reduced sugar level (at least lower 
than 30  %) in accordance with Regulation (EC) No 1924/2006 on nutritional claims.  
Whenever possible, as is the case for dehydrated preserved milk, reference to internationally 
agreed standards is made, to avoid introducing disproportionate rules that would put the 
internal market at odds with the international standards.  
• Choice  of the instrument  
The ins trument chosen is a Directive as the existing legislation is embodied in Directives and 
there is no demonstrated need to replace them by a directly applicable Regulation.  
3. RESULTS  OF EX-POST  EVALUATIONS,  STAKEHOLDER  
CONSULTATIONS  AND  IMPACT  ASSESSMENTS  
• Ex-post evaluations/fitness  checks  of existing  legislation  
Preparing the revision, the Commission has published an external evaluation support study of 
marketing standards  (the ‘study’)10 and a staff working document on the evaluation of 
marketing standard s (the ‘evaluation’)11. Both documents cover the Breakfast Directives.  
Building on the study, the evaluation concluded that Union marketing standards have 
generally been effective in achieving their intended objectives, without causing significant 
unintende d/unexpected effects. On jams, jellies and marmalades notably, thanks to provisions 
on minimal sugar content and the possibility for Member States to make derogations in that 
respect, the evaluation concluded that a satisfactory balance has been achieved b etween the 
consumer’s interest in ensuring product preservation and the need to consider specific 
national characteristics, as well as policy priorities of promoting healthier diets (jams  with 
lower free sugar content ). The evaluation  also found that Union  marketing standards provide 
significant added value compared to international and private marketing standards because 
they: (i) are mandatory and the requirements must be complied with across the Union;  (ii) are 
tailored to the specific operational and market s ituation of the Union;  and, (iii) impose , for 
many products , more demanding quality requirements . The evaluation did identify  that some 
existing standards potentially did  not sufficiently accommoda te changes in technology, 
marketing strategies and consumer preferences . That was the case for juices in particular, 
where the evaluation identified the following issue: Directive 2012/12/EU established that the 
addition of sugars to fruit juices was no lo nger allowed  and after 28 October 2016 the use of 
the statement ‘from 28 April 2015 no fruit juices contain added sugars’ for fruit juices was no 
longer allowed,  whereas other fruit -based  beverages , including nectars, could continue to use 
                                                 
10 Areté et al. (2020). Evaluation of marketing standards contained in the CMO Regulation, the ‘Breakfast 
Directives’ and CMO  secondary legislation. Brussels: European Commission. 
https://doi.org/10.2762/475831.  
11 European Commission  (2020). Evaluation of marketing standards. Commission Staff Working 
Document SWD/2020/0230.  EN 6  EN the ‘with no add ed sugars ’ and the indication ‘contains only naturally occurring sugars’, 
creating confusion amo ng consumers  and result ing in unfair competition . 
• Stakeholder  consultations  
In 2019, the Commission carried out an evaluation of marketing standards, includin g the 
Breakfast Directives because they are assimilated to marketing standards, and included a 
public consultation. More recently, between 8 June and 31 August 2021, the Commission 
carried out a public consultation on the revision of Union marketing standa rds for agricultural 
products, including the Breakfast Directives because they are assimilated to marketing 
standards, using its EU -Survey platform. The Commission also held a technical workshop 
with selected experts from the food supply chain, consumer gr oups, NGOs, and academia, in 
collaboration with the JRC on 9 September 202112 and consulted Member States in a targeted 
consultation from 17 September to 14 October 2021. The Commission also held 
complementary consultations and bilateral exchanges with key stakeholders via email and ad 
hoc video meetings.  
As regards honey, the Unio n beekeeping sector very much supports stricter origin labelling 
rules and the indication of individual countries in honey blends. Honey importers and packers 
highlighted the need for a level playing field and having the same rules in all Member States.  
As regards fruit juices, the juice industry supports the creation of a new category of fruit 
juices where naturally -occurring sugars have been removed to the extent that other essential 
characteristics are not affected. In addition, the sector expressed thei r interest in  being able to 
use the fruit juice product name also when other ingredients and additives like spices, herbs 
and fibres have been added. However, this would change the essential characteristics of the 
fruit juices that are a product with a lim ited list of possible authorised ingredients and 
substances. Finally, the sector also asked for the possibility to indicate on the label the lack of 
added sugar in fruit juices.  
As regards jams, jellies and marmalades, the main manufacturers would like to maintain the 
status quo on fruit and sugar content, while f ruit suppliers are in favour of increasing the fruit 
content  in those products . 
• Impact  assessment  
The Commission prepared an impact assessment report on the revision of Union marketing 
standards for agricultural products, including the Breakfast Directives because they are 
assimilated to marketing standards, to update the rules to market development and ensure the 
uptake and supply of sustainable products13. The Regulatory Scrutiny Board gave a pos itive 
opinion with reservations on the impact assessment report on 21 September 202214. As 
regards the changes covered in this Proposal, the Regulatory Scrutiny Board requested that 
impact assessment report be reinforced as regards the assessment and compar ison of the 
options of the standards selected for in­depth assessments, as well as on the envisaged 
monitoring arrangements, which were addressed in the respective sections of the impact 
assessment report.  
Concerning honey, the following approaches were co nsidered:  
 replacement of the term ‘non -EU’ with the non -EU countries of origin;  
                                                 
12 Russo, C. et al. (2022). Workshop on Marketing Standards: Benefits and costs of EU marketing 
standards for agri -food products. JRC Technical Report. Luxembourg: European Union. 
https://doi.org/10.2760/635080.  
13 [to be completed by OP ] 
14 [to be completed by OP ] EN 7  EN  replacement of the term ‘non -EU’ with the geographic region of origin;  
 obligatory indication of all individual countries of origin (Member States and third 
countries);  
 obligatory indication of all individual countries of origin (Member States and third 
countries), including the percentage.  
The preferred approach creates legal certainty for Union producer and honey importers. 
Member States and stakeholders highlighted at several occasions the need for improved 
consumer information on the origin of honey in blends. On balance, t he third approach was 
retained as it would offer the exact identification of the countries of origin, thereby satisfying 
consumer demand, while limi ting costs and burdens linked to the indication of the exact 
percentage of each origin in honey blends  and being in line with the Union’s international 
obligations . 
For reduced -sugar fruit juices, the follow ing approaches were considered:  
 Option I: to auth orise certain treatments in fruit juice to reduce naturally -occurring 
sugars and, because the sugar level will be reduced below the mandatory levels, add 
a derogation to the minimum Brix levels for fruit juices from concentrate (provided 
that water additio n does not overpass the water extracted for concentration).  
 Option II: to authorise certain treatments or additional ingredients to reduce 
naturally -occurring sugar, while preserving all the other essential physical, chemical, 
organoleptic and nutritional characteristics  of the final products (e.g. nutrients, taste, 
mouthfeel), for the use of the product names concerning fruit juice (fruit juice from 
concentrate, etc.).  
 Option III: same as Option II, with the additional requirement that the reduction of 
sugar should be at least 30  % compared to a similar product, in accordance with 
Regulation (EC) No 1924/2006 on nutritional claims.  
On balance, the third approach was retained as it was the most efficient and proportionate to 
ensure that the consumer is corre ctly informed about the product and that the product is of 
quality.  The approach creates a clear legal framework  and allows for  commercial plannability 
for both larger players and SMEs which are developing this new product and enables the basis 
for a retur n on investment concerning their research and development. Science is advanced 
enough to allow for the  verif ication of the  authenticity of the sugar -reduced fruit juices.  In 
addition,  it does not add a significant burden on national control authorities. Th ere is a 
demand for processed products reformulation, especially products with lower free sugars 
content, both from consumers and health authorities. The approach addresses  this demand.  
Given that the food business operators and  consumers are already accustomed to the threshold 
of 30  % reduction for all products as regards nutritional claims on sugar content, it appears 
coherent to use the same 30  % threshold for reduced -sugar fruit juices, rather than allowing 
any possible level  of reduced sugar content, even below 30  %. 
All approaches provide  the juice  sector as a whole, whether for fu ture imports from outside 
the Union  or futu re marketing intra -Union , with a positive impact in terms of assurance of 
return on investment, hence a  positive economic impact for the manufacturers.  The preferred 
approach provide s more opportunit ies in term s of market segmentation, allowing for a better 
appreciation of the quality of the final product.  Ensuring that the consumers get products with 
reduc ed-sugar content (reduced -sugar fruit juice with an overall better nutritional profile) 
contribute s to th e objective  of empowering consumers to make informed, healthy and 
sustainable food choices . The same is true for  ensur ing that the product names do not  create EN 8  EN confusion for the consumers and lead them to choosing a product that is not in accordance 
with their expectations. The preferred approach  mandate s a sugar reduction of at least 30  %. 
The emphasis on the health aspect is even more prominent  because  the sugar reduction level 
would be at least 30  % and not any value below that. However, the risk of this approach  is 
that less product s would be sold on the market with such a low level of sugar compared to  the 
approaches not mandating at least a 30  % redu ction . However, with a required mandatory 
indication of the product being sugar -reduced, consumers would be more prominently alerted 
about the sugar -reduced characteristic of the product.  No direct environmental effects  are 
anticipated  as none of the proce sses used to reduce naturally -occurring sugars  are understood 
to necessitate the use of products impacting significantly the environment  or be particularly 
energy -consuming . 
As regards jams, the following approaches were considered:  
 to remove the required minimum amount of total sugars entirely;  
 to lower the required minimum amount of total sugars, and to set it at, for example, 
55 % like it is done in France, Germany and the Netherlands or at 50  %; 
 to increase the general minimum fruit content to 450g/1000g (as opposed to 
350 g/1000  g currently), so far reserved for ‘extra jam’ and ‘extra jelly’ which, as a 
consequence, reduces the amount of added sugar needed to reach the minimum 
content of soluble dry matter in these products.  
On balance, t he third approach was retained as it was the most efficient and proportionate to 
ensure that the amount of added sugar needed to reach the minimum content of soluble dry 
matter in these products is reduced while maintaining the essential characteristics of  the 
product (preservation, consistency and mouthfeel) . This approach entails that the current level 
of fruit content used for ‘extra jam’ and ‘extra jellies’ becomes  the new level of fruit content 
to be used for ‘jams’ and ‘jellies’, while a yet -higher fr uit content value is to be used for the 
products named  ‘extra jam’ and ‘extra jellies’. This is an economically sound option based on 
demand -driven market segmentation considerations both from a n internal market and 
international trade point of view, which  promotes more wholesome product s with less free 
sugars. It does not create additional food waste. It creates no new administrative burden , while 
maintaining the status quo on the possibility for M ember States to adapt to their national 
preferences and red uce in their national legislation the minimum sugar content of jams and 
jellies . 
This approach would automatically reduce the  sugar  added  in the products . This approach  
could theoretically raise the costs for the processors but this is estimated to be a ma rginal 
increase  as the vast majority of  jams marketed in the Union already have a level of fruit 
content equal to or above the one currently required  for extra jams. There would be some 
costs to the sector to adapt all the labels for packaging. This economic impact could be 
addressed with a transition phase in the application of the new rules. Raising the fruit content 
in jams to the level of extra jams acr oss the board would only have an impact of cost and 
organisation of production on manufacturers that do not currently produce extra jams , because 
for their products, they would have to modify their production to increase the fruit content to 
continue using  the product name ‘jam’ . The economic impact would therefore be rather 
limited. As regards social impact, t his approach  aims to impact the level of free sugar in jams 
and the amount of complete fruit consumed, but not the shelf life, since the minimum total 
sugar content remain s unchanged. It would also not remove the possibility for Member States 
to authorise  lower minimum sugar content and would not prevent the ma rketing of jams with EN 9  EN a reduced sugar level (at least lower than 30  %) in accordance with Regu lation (EC) No 
1924/2006 on nutritional claims . At equal serving size, this change would lead to an increase 
of the complete fruit content in jams and a lower intake of free sugars. The main impact of 
this option would be to no longer have products labelle d as jam with lower complete fruit 
content available on the Union  market, raising the standard across the board for consumers, 
ensuring higher quality for consumers.  No direct environmental effect is expected. If 
anything, it may create an increased outlet  for fruit not conforming to marketing standards for 
fresh consumption and in this sense, have a positive impact on food waste. However, this 
positive impact is difficult to quantify, as it depends on each type of fruit and each producing 
region in the Union. 
The proposal to amend the four Directives is anticipated to have no direct environmental 
effect. Therefore, there are no identified issues that significantly harm the environment or 
incoherence with the European Climate Law15. 
The preferred approaches w ere considered to contribute to the following sustainable 
development goals (SDG)16: 
– SDG #2 End hunger, achieve food security and improved nutrition and promote 
sustainable agriculture (2.4 By 2030, ensure sustainable food production systems and 
implement r esilient agricultural practices that increase productivity and production, 
that help maintain ecosystems, that strengthen capacity for adaptation to climate 
change, extreme weather, drought, flooding and other disasters and that progressively 
improve land and soil quality) . 
– SDG #3 Ensure healthy lives and promote well -being for all at all ages (3.4 By 2030, 
reduce by one third premature mortality from non -communicable diseases through 
prevention and treatment and promote mental health and well -being).  
– SDG #8 Promote sustained, inclusive and sustainable economic growth, full and 
productive employment and decent work for all (8.2 Achieve higher levels of 
economic productivity through diversification, technological upgrading and 
innovation, including through a  focus on high -value added and labour -intensive 
sectors) . 
– SDG # 12. Ensure sustainable consumption and production patterns  (12.8 By 2030, 
ensure that people everywhere have the relevant information and awareness for 
sustainable development and lifestyles in  harmony with nature ). 
The proposal concerns the rules for definitions, names, common rules on composition and 
labelling requirements  for honey, fruit juices and jams. It does not purport to change any 
automation process that the industry or the authoritie s have or will put in place to manufacture 
or control the quality of the products concerned. In that sense, no impact is expected on the 
‘digital by default’ principle17. 
                                                 
15 Regulation (EU) 2021/1119 of the Europea n Parliament and of the Council of 30 June 2021 establishing 
the framework for achieving climate neutrality and amending Regulations (EC) No 401/2009 and (EU) 
2018/1999, OJ L 243, 9.7.2021, p. 1.  
16 https://un docs.org/A/RES/71/313 . 
17 Commission Communication, 2030 Digital Compass: the European way for the Digital Decade, 
COM(2021) 118 . EN 10  EN • Regulatory  fitness  and simplification  
In the evaluation, the potential for simplific ation of the rules on honey, jams, jellies and 
marmalades, fruit juices and certain similar products , and dehydrated preserved milk was 
found to be limited, given the relatively low costs of complying with Union marketing 
standards and the fact that the st akeholders consulted (business operators and competent 
authorities) did not identify any overlaps/redundancies in the provisions that might lead to 
unnecessary costs. In this view, n o efficiency gains nor a simplification related to the 
implementation of t he policy can be expected.  
• Fundamental  rights  
The revision respects the rights enshrined in the Charter of Fundamental Rights of the 
European Union (Articles 51, 52); an effective system of EU marketing standards, including 
the Breakfast Directives, will  in particular contribute to stakeholders’ ability to conduct a 
business on a level playing field across the internal market (Article 16) , while protecting the 
interests of consumers and contributing to meeting their expectations . 
4. BUDGETARY  IMPLICATIONS  
The proposal has no impact on the budget of the European Union.  
5. OTHER  ELEMENTS  
• Implementation  plans  and monitoring,  evaluation  and reporting  arrangements  
An implementation plan is not considered needed for these revisions as Member States have a 
long experience of implementing the four Breakfast Directives concerned and the proposed 
revisions are of a very technical scope.  
The impact of the main revisions of the four Breakfast Directives concerned will be evaluated 
as follows:  
The impact of detailed origin labelling of honey blends on the EU honey market will be 
evaluated by monitoring the development of sales of honey with different origin indication. 
This information is not available on a systematic basis. A representative market survey will be 
necessary. Ideally, the Commission will base such survey on information from the individual 
Member States.  
The impact of the creation of a new category of products in Directive 2001/112/EC will be 
evaluated by monitoring the evolution of reduced -sugar fruit ju ice in terms of sales and 
market shares in the Union over the medium -term using market reports and Euromonitor data, 
to assess the uptake and consumer interest in reduced -sugar fruit juices.  
The impact of the revision of the composition of jams and jellies  will be evaluated by 
reviewing at regular intervals the level of sales of jams and other products covered by the 
Directive versus other spreadable products or other fruit -based products, as well as expanding 
the scope of existing surveys such as Eurostat’ s survey on consumption of fruit and 
vegetables, as well as national nutritional surveys, to other products containing fruit, to 
evaluate the level of consumption of jams and jellies in the Union.  
In addition, the Commission will make use of existing chann els to monitor the 
implementation of marketing standards in general to collect information and data on how the 
proposed revisions of the Breakfast Directives are implemented in the market by operators, 
how they are perceived by consumers, how they are cont rolled by authorities, what their 
general added value is. This includes tabling a regular dedicated discussion on the standards EN 11  EN in the Expert Group on the Common Organisation of the Market in agricultural products with 
delegates from Member State authoriti es and in the Civil Dialogue Group with relevant 
stakeholders. The information will then be used, together with others, in a study that the 
Commission plans to conduct in the medium -term on the functioning of the marketing 
standards ( including  the Breakfas t Directives) and their contribution to the market 
functioning.  
• Explanatory  documents  (for directives)  
This proposal does not require any explanatory document on its transposition as it is 
sufficiently self -standing.  
• Detailed  explanation  of the specifi c provisions  of the proposal  
Article 2(4) of Directive 2001/110/EC requires the country or countries of origin where the 
honey has been harvested to be indicated on the label and provides that, if honey originates in 
more than one Member State or third country, the mandatory indication of the countries of 
origin may be replaced by one of the following, as appropriate: ‘blend of EU honeys’, ‘blend 
of non -EU honeys’, ‘blend of EU and  non-EU honeys’. In the light of the Farm to Fork 
Strategy’s objective of strengthening consumers in making informed choice s, including on the 
origin of their food, and in the interest to preserve the efficient functioning of the internal 
market throughout  the Union  through a harmonisation of the labelling rules, it is appropriate 
to revise the rules for honey origin labelling  and provide that the country or countries of 
origin should be mentioned on the packaging. In light of the reduced size of the packs 
containing only a single portion of honey (breakfast packs)  and the resulting technical 
difficulties , where the honey originates in more than one country, it is therefore appropriate to 
exempt those packs from the obligation of listing all individual count ries of origin . 
In 2012, Directive  2001/112/EC  was amended by Directive 2012/12/EU of the European 
Parliament and of the Council  to reflect the new rules on authorised ingredients, such as those 
pertaining to the addition of sugars, which were no longer au thorised in fruit juices. In the 
light of this change of compositional requirements for fruit juices, the fruit juice industry was 
allowed to use, for one year only, a statement indicating that no fruit juices contain added 
sugars, in order to inform consu mers and enable them to make an immediate clear distinction 
between fruit juices and other certain similar products in terms of the addition of sugars in the 
products. This short time -span proved insufficient to inform society that, following the new 
rules  on authorised ingredients, the addition of sugars is no longer authorised in fruit juices. 
As a consequence,  for some consumers and health practitioners, it is still not clear that fruit 
juices , contrary to fruit nectars,  cannot  contain added sugars.  
In turn, in accordance with Part II, point 2, indent 5 of Annex I, to Directive  2001/112/EC, 
fruit nectars containing neither added sugars nor sweeteners could bear the nutrition claim 
‘with no added sugars’ or any claim likely to have the same meaning for the  consumer, 
accompanied by the indication ‘contains naturally occurring sugars’. This, together with the 
fact that fruit juices may not bear a nutrition claim on sugars nor the indication ‘contains 
naturally occurring sugars’, may have misled consumers as r esearch has shown that among 
several products with identical or very similar nutrition composition, the product with a 
nutrition claim would be preferred.  
Therefore, considering , in particular,  that consumers are increasingly aware of health 
concerns linke d to the consumption of sugar, it is appropriate to revise the rules on the use of 
statements on sugar for fruit juices to allow consumers to make informed choices. It is 
therefore appropriate to reintroduce, without a time limitation, the possibility for the industry 
to use the statement indicating that no fruit juices contain added sugars . EN 12  EN As a result of technical progress, new processing techniques have been or are being developed 
to remove naturally occurring sugars in fruit juices and fruit juices from  concentrate, to 
address the growing consumer demand for products with a lower sugar content. While such 
products can be marketed in the Union to the extent that they comply with all relevant 
legislation, they may not bear the product name ‘fruit juice’ or  ‘fruit juice from concentrate’ , 
since a treatment other than those authorised in Part II, point 3, of Annex I to Directive 
2001/112/EC has been applied to obtain those products and their total sugar content (Brix 
level) is lower than the ones of the juice  as extracted from the fruit.  
As such products are becoming increasingly available on the Union market , it is appropriate,  
in order to facilitate the ir placing on the internal market, while taking into account the need to 
encourage product reformulation to  reduce the amount of sugars present in fruit juices, to 
create a new category of products for fruit juices whose naturally occurring sugars have been 
partially removed while keeping all the other essential physical, chemical, organoleptic  and 
nutritional characteristics . These products should bear the product name ‘reduced -sugar fruit 
juice’ or ‘reduced -sugar fruit juice from concentrate’ and to have a Brix level lower than the 
ones of the juice as extracted from the fruit. It is also appropriate to lay do wn rules on the 
authorised ingredients for these products, as well as the authorised treatments and substances. 
It is expected that as a result of technical progress, new processing techniques will be 
developed. Pursuant to Articles 7 and 7a of Directive 2 001/112/EC, the Commission is 
empowered to adopt delegated acts to lay down , amongst others,  the authorised treatments  in 
Part II, point 3  of Annex I to the Directive, in order to bring them into line with developments 
in relevant international standards or to take into account technical progress , particularly as 
regards reduc tion of  the sugar content of fruit juices . 
In accordance with Annex I to Directive 2001/112/EC, fruit nectars may contain added sugars 
and/or honey. In order to support the production  and marketing of fruits  and to improve the 
minimum quality of nectars , the proportion of sugars and/or honey that may be added to fruit 
nectars that are naturally low in acidity and palatable should be lowered.  
Part II, point 3, of Annex I to Directive 20 01/112/EC regulates the authorised treatments and 
substances for fruit juices and certain similar products. Protein from sunflower seeds is 
increasingly used for direct human consumption and has demonstrated to be an efficient tool 
for clarification of fru it juices. In order to take into account this further progress, proteins 
from sunflower seeds should be added to the list of authorised treatments and substances.  
The juice extracted from coconuts is increasingly marketed and consumed in the Union. In 
accordance with Article 3(2) of Directive 2001/112/EC, the legal name of that product is 
‘coconut juice’. However, the international standard reflected in the Codex General Standard 
for fruit juices and nectars (Codex Stan 247 -2005), adopted by the Codex Alime ntarius 
Commission during its 28th session held from 4 to 9 July 2005, indicates that the name 
‘coconut water’ is a synonym of ‘coconut juice’, which is directly extracted from the coconut 
without expressing the coconut meat. In order to bring Council Dire ctive 2001/112/EC in line 
with that international standard, it is therefore appropriate to add a particular designation for 
‘coconut water’ in its Annex III. That particular designation may be used in the respective 
official languages. In addition, as coco nut juice may be obtained by reconstituting 
concentrated coconut juice with potable water, it is appropriate to define a minimum Brix 
level for this product, in Annex V to that Directive.  
Article 2(4) of Directive 2001/113/EC requires the mandatory labelli ng of sugar content on 
the labelling, unless a nutrition claim for sugars is made on the labelling. This requirement 
went further than the rules laid down in Council Directive 90/496/EEC of 24 September 1990 
on nutrition labelling for foodstuffs, where the  inclusion of nutrition information on EN 13  EN prepacked foods was voluntary unless a nutrition claim was made and , where the nutrition 
claim was made for sugars, it should include the amounts of sugar. Directive 90/496/EEC has 
been repealed and replaced by Regula tion (EU) No 1169/2011 of the European Parliament 
and of the Council on the provision of food information to consumers. Pursuant to Regulation 
(EU) No 1169/2011 the provision of nutrition information on packaging is now mandatory. 
Therefore, a specific pro vision on sugar labelling is no longer necessary in Directive 
2001/113/EC and it is appropriate to delete it.  
Part I of Annex I to Directive 2001/113/EC lays down the minimum quantity of fruit to be 
used in the manufacture of jam, jelly, extra jam or extra  jelly. The use of the terms ‘extra jam’ 
and ‘extra jelly’ are reserved for products manufactured with a higher quantity of fruit 
compared to ‘jam’ and ‘jelly’, respectively. Part II of Annex I to the same Directive sets the 
minimum content of soluble dry matter ( i.e. sugars whether naturally occurring in the fruit or 
added) for those products, and, in order to take into account existing national traditions in the 
making of fruit jams, jellies and marmalades and sweetened chestnut purée, it allows Member 
States to authorise a lower minimum content of soluble dry matter.  
Where the quantity of fruit used to manufacture jams and jellies is increased, the amount of 
added sugar needed to reach the minimum content of soluble dry matter in these products is 
reduced . In order to stimulate the production of jams with an increased level of fruit content 
and thus support the fruit market while taking into account the need to reduce free sugar 
content,  that is, both the added sugars and those naturally present  in fruit j uice, the minimum 
quantity of fruit to be used in the manufacture of jam, and extra jam laid down in Annex I to 
Directive 2001/113/EC should be increased.  In order to stimulate the production of jellies 
with an increased level of fruit content and thus sup port the fruit market, the minimum 
quantity of fruit to be used in the manufacture of jelly and extra jelly laid down in Annex I to 
Directive 2001/113/EC should be increased . Similarly, in view to helping consumers to make 
better informed, healthy food cho ices, it is appropriate to authorise the use of the reserved 
names defined in Part I of Annex I to Directive 2001/113/EC for products which have a 
soluble dry matter content of less than 60  % but meet the conditions applying to the nutrition 
claim ‘reduced  sugars’ laid down in the Annex to Regulation (EC) No 1924/2006 as regards 
reduced sugar.  
Annex I to Directive 2001/113/EC restricts the term ‘marmalade’ to a particular citrus fruit 
mixture. However, in a number of Union languages, while the legal names l aid down in 
Annex I to Directive 2001/113/EC have been used in trade to designate the products referred 
to therein, the society at large uses interchangeably the terms ‘marmalade’ and ‘jam’ to refer 
to jams from fruits other than citrus fruits. In order to  take into account these practices where 
it is the case, Member States should be able to authorise that the term ‘marmalade’ is used for 
the product name ‘jam’. In order to avoid consumer confusion, the term ‘citrus marmalade’ 
should be used across the Uni on for the product until now defined as ‘marmalade’ in order to 
distinguish the two product categories. This is also in line with the international standard 
reflected in the Codex General Standard for jams, jellies and marmalades, (Codex Stan 296 -
2009), ad opted by the Codex Alimentarius Commission during its 32nd session held from 29 
June to 4 July 2009, which establishes a distinction between citrus marmalade and non -citrus 
marmalade. It is therefore appropriate to revise Directive 2001/113/EC accordingly as regards 
the product name ‘marmalade’.  
Annex II to Directive 2001/113/EC lists the additional ingredients that may be used in the 
manufacturing of products covered by the Directive. Citrus fruit juice may be used as 
acidifying agent in jam, extra jam, je lly and extra jelly obtained from other types of fruit. 
Compared to juice not from concentrate, citrus fruit juice in its concentrated form is less 
voluminous and less heavy to transport, more stable, can be preserved a longer time and EN 14  EN requires less energy  consumption to evaporate the water content when manufacturing the final 
jam or jelly product. Its use in jam, extra jam, jelly and extra jelly production is therefore 
more sustainable than fresh citrus fruit juice. Therefore, it is appropriate to add conc entrated 
citrus fruit juice in the list of additional ingredients laid down in Annex II to Directive 
2001/113/EC.  
Point 3 of Annex I to Directive 2001/114/EC lists the treatments authorised to partly or 
wholly dehydrate preserved milk. In order to respond to evolving consumers’ needs, a 
treatment to produce lactose -free dehydrated milk products should be authorised. 
Furthermore, the particular designation for the English term ‘evaporated milk’ in Annex II to 
that Directive should be aligned with the interna tional standards defined in the Codex 
Standard for evaporated milks (Codex Stan 281 -1971).  
Directives 2001/110/EC, 2001/112/EC, 2001/113/EC and 2001/114/EC contain references to 
repealed acts. Directive 2000/13/EC of the European Parliament and of the Coun cil of 20 
March 2000 on the approximation of the laws of the Member States relating to the labelling, 
presentation and advertising of foodstuffs was repealed and replaced by Regulation (EU) No 
1169/2011. Council Directive 89/107/EEC of 21 December 1988 on the approximation of the 
laws of the Member States concerning food additives authorized for use in foodstuffs intended 
for human consumption and European Parliament and Council Directive No 95/2/EC of 20 
February 1995 on food additives other than colours a nd sweeteners were repealed and 
replaced by Regulation (EC) 1333/2008 of the European Parliament and of the Council of 16 
December 2008 on food additives. Those references should therefore be replaced by 
references to the relevant provisions of Regulation (EU) No 1169/2011 and Regulation (EC) 
1333/2008.  
In order to allow Member States to adopt national laws, regulations and administrative 
provisions necessary to comply with this Directive, a transposition period of 18 months 
should be established. In order to allow operators to sufficient time to adjust to the new 
requirements, those national provisions transposing this Directive should only apply from 24 
months after the date of entry into force of this Directive.  
In order to take into account the interests  of economic operators who place on the market or 
label their products in accordance with the requirements applicable before the application of 
the national provisions transposing this Directive, it is necessary to establish appropriate 
transitional measur es. Therefore, this Directive should provide that those products may 
continue to be marketed for a limited time beyond the end of the transposition period.  EN 15  EN 2023/0105 (COD)  
Proposal for a  
DIRECTIVE OF THE EUROPEAN PARLIAMENT AND OF THE COUNCIL  
amending Council Directives 2001/110/EC relating to honey, 2001/112/EC relating to 
fruit juices and certain similar products intended for human consumption, 2001/113/EC 
relating to fruit jams, jellies  and marmalades and sweetened chestnut purée intended for 
human consumption, and 2001/114/EC relating to certain partly or wholly dehydrated 
preserved milk for human consumption  
THE EUROPEAN PARLIAMENT AND THE COUNCIL OF THE EUROPEAN UNION,  
Having regard t o the Treaty on the Functioning of the European Union, and in particular 
Article 43(2) thereof,  
Having regard to the proposal from the European Commission,  
After transmission of the draft legislative act to the national parliaments,  
Having regard to the op inion of the European Economic and Social Committee1, 
Having regard to the opinion of the Committee of the Regions2, 
Acting in accordance with the ordinary legislative procedure,  
Whereas:  
(1) In line with the objectives set out in the Commission Communicat ion of 11 December 
2019 on ‘The European Green Deal’, the Commission adopted the Commission 
Communication of 20 May 2020 entitled ‘A Farm to Fork Strategy for a fair, healthy 
and environmentally -friendly food system’ (‘Farm to Fork Strategy’), where it 
announced measures for a healthier and more sustainable Union food system. Among 
those measures, the Commission seeks to stimulate product reformulation of foods 
high in sugars and facilitate the shift to healthy and sustainable diets. Furthermore, to 
empower  consumers to make informed, healthy and sustainable food choices, the 
Commission also announced a possible extension of the mandatory origin or 
provenance indications to certain products, while fully taking into account impacts on 
the internal market.  
(2) Council Directive 2001/110/EC3 lays down definitions, names, common rules on 
composition and labelling requirements for honey.  
(3) In light of the close link between the quality of honey and its origin  and the need for 
the consumer not to be misled regard ing the quality of the product , Directive 
2001/110/EC  lays down rules on the labelling of the origin where the honey has been 
harvested.  In particular, Article 2(4) of that Directive requires the country or countries 
of origin where the honey has been harvested to be indicated on the label and provides 
that, if honey originates in more than one Member State or third country, the 
mandatory indication of the countries of origin may be re placed by one of the 
                                                 
1 OJ C […], […], p. […]. 
2 OJ C […], […], p. […]. 
3 Council Directive 2001/110/EC of 20 December 2001 relating to honey ( OJ L 10, 12.1.2002, p. 47) . EN 16  EN following, as appropriate: ‘blend of EU honeys’, ‘blend of non -EU honeys’, ‘blend of 
EU and non -EU honeys’. The different rules adopted on this basis by Member States 
may have misled consumers and may have hindered the functioning of t he internal 
market. In the light of the Farm to Fork Strategy’s objective of strengthening  
consumers in making informed cho ices, including  on the origin of their food , and in 
the interest to preserve the efficient functioning of the internal market through out the 
Union through a harmonisation of the labelling rules, it is appropriate to revise the 
rules for honey origin labelling  and provide that the country or countries of origin 
should be mentioned on the packaging . In light of the reduced size of the pac ks 
containing only a single portion of honey (breakfast packs)  and the resulting technical 
difficulties , it is therefore appropriate to exempt those packs from the obligation of 
listing all individual countries of origin , where the honey originates in more  than one 
country . 
(4) Council Directive 2001/112/EC4 lays down the essential requirements to be met 
regarding production, composition and labelling of fruit juices and certain similar 
products intended for human consumption in order to protect the interes ts of 
consumers and to enhance the free movement of those products.  
(5) In 2012, Directive 2001/112/EC was amended by Directive 2012/12/EU of the 
European Parliament and of the Council5 to reflect the new rules on authorised 
ingredients, such as those pertaining to the addition of sugars, which were no longer 
authorised in fruit juices. In the light of this change of compositional requirements for 
fruit juices, the fruit juice industry w as allowed to use, for one year only, a statement 
indicating that no fruit juices contain added sugars, in order to inform consumers and 
enable them to make an immediate clear distinction between fruit juices and other 
certain similar products in terms of the addition of sugars in the products. This short 
time-span proved insufficient to inform society that, following the new rules on 
authorised ingredients, the addition of sugars is no longer authorised in fruit juices. As 
a result,  for some of the consume rs and health practitioners, it is still not clear that fruit 
juices , contrary to fruit nectars,  cannot  contain added sugars.  
(6) In turn, in accordance with Part II, point 2, indent 5 of Annex I, to Directive 
2001/112/EC , fruit nectars containing neither added sugars nor sweeteners could bear 
the nutrition claim ‘with no added sugars’ or any claim likely to have the same 
meaning for the consumer, accompanied by the indication ‘contains naturally 
occurring sugars’ , as listed in the Annex to Regulation (EC) No 1924/2006 of the 
European Parliament and of the Council6. This, together with the fact that fruit juices 
may not bear a nutrition claim on sugars nor the indication ‘contains naturally 
occurring sugars’, may have misled consumers as research has shown t hat among 
several products with identical or very similar nutrition composition, the product with 
a nutrition claim would be preferred.  
(7) Therefore, considering , in particular, that consumers are increasingly aware of health 
concerns linked to the consum ption of sugar, it is appropriate to revise the rules on the 
use of statements on sugar for fruit juices to allow consumers to make informed 
                                                 
4 Council Directive 2001/112/EC of 20 December 2001 relating to fruit juices and certain similar 
products intended for human consumption ( OJ L 10, 12.1.2002, p. 58 ). 
5 Directive 2012/12/EU of the European Parliament and of the Counci l of 19 April 2012 amending 
Council Directive 2001/112/EC relating to fruit juices and certain similar products intended for human 
consumption (OJ L 115, 27.4.2012, p. 1).  
6 Regulation (EC) No 1924/2006 of the European Parliament and of the Council of 20 D ecember 2006 on 
nutrition and health claims made on foods ( OJ L 404, 30.12.2006, p. 9 ). EN 17  EN choices. It is therefore appropriate to reintroduce, without a time limitation, the 
possibility for the industry to  use the statement indicating that no fruit juices contain 
added sugars . 
(8) As a result of technical progress, new processing techniques have been or are being 
developed to entirely or partially remove naturally occurring sugars in fruit juices and 
fruit juices from concentrate, in order to address the growing consumer demand for 
products with a lower sugar content. Such products can be marketed in the Union to 
the extent that they comply with all relevant legislation. However, those products are 
obtained by applying a treatment that is not one of the authorised treatments in Part II, 
point 3, of Annex I to Directive 2001/112/EC and their total sugar content, known as 
Brix level for an aqueous solution, is lower than that of juice extracted from the fruit. 
As a result, they may not bear the product name ‘fruit juice’ or ‘fruit juice from 
concentrate’.  
(9) Such products are becoming increasingly available on the Union market. In order to 
facilitate the placing on the internal market of those products, taking also into account 
the need to encourage product reformulation to reduce the amount of sugars present in 
fruit juices, a new category of products should be created for fruit juices whose 
naturally occurring sugars have been entirely or partially removed whi le keeping all 
the other essential physical, chemical, organoleptic  and nutritional characteristics . 
These products should bear the product name ‘reduced -sugar fruit juice’ or ‘reduced -
sugar fruit juice from concentrate’ and to have a Brix level lower than  that of the juice 
extracted from the fruit. In order to ensure consistency with Regulation (EC) No 
1924/2006  the reduction of sugar content should be at least 30  % compared to  fruit 
juice and fruit juice from concentrate. It is therefore appropriate to ad d the new 
category of products in Part I of Annex I to Directive 2001/112/EC as well as to lay 
down rules on the authorised ingredients for those products, as well as the authorised 
treatments and substances.  
(10) In accordance with Annex I to Directive 20 01/112/EC, fruit nectars may contain added 
sugars and/or honey. In order to support the production and marketing of fruit, while 
taking into account the need to stimulate product reformulation to reduce the amount 
of sugars present in fruit nectars , the pr oportion of sugars and/or honey that may be 
added to fruit nectars that are naturally low in acidity and palatable should be lowered.  
(11) Part II, point 3, of Annex I to Directive 2001/112/EC regulates the authorised 
treatments and substances for fruit ju ices and certain similar products. Protein from 
sunflower seeds is increasingly used for direct human consumption and has 
demonstrated to be an efficient tool for clarification of fruit juices. In order to take into 
account this further progress, proteins from sunflower seeds should be added to the list 
of authorised treatments and substances.  
(12) The juice extracted from coconuts is increasingly marketed and consumed in the 
Union. In accordance with Article 3(2) of Directive 2001/112/EC, the legal name of  
that product is ‘coconut juice’. However, the international standard reflected in the 
Codex General Standard for fruit juices and nectars (Codex Stan 247 -2005), adopted 
by the Codex Alimentarius Commission during its 28th session held from 4 to 9 July 
2005, indicates that the name ‘coconut water’ is a synonym of ‘coconut juice’ which is 
directly extracted from the coconut without expressing the coconut meat. In order to 
bring Directive 2001/112/EC in line with that international standard, it is therefore 
appropriate to add ‘coconut water’ as a particular designation in Annex III to that 
Directive. In order to ensure that the particular designation can be easily understood by EN 18  EN all consumers in the Union, it is appropriate to provide the possibility of using 
‘coconut water’ in the official languages of the Union. In addition, as coconut juice 
may be obtained by reconstituting concentrated coconut juice with drinkable water, it 
is appropriate to define a minimum Brix level for this product in Annex V to that 
Directive.  
(13) Council Directive 2001/113/EC7 lays down the essential requirements to be met 
regarding production, composition and labelling of fruit jams, jellies and marmalades 
and sweetened chestnut purée intended for human consumption.  
(14) Article 2(4) of Directive 2001/113/EC requires the mandatory labelling of sugar 
content on the labelling, unless a nutrition claim for sugars is made on the labelling. 
This requirement went further than the rules laid down in Council Directive 
90/496/EEC8, where the in clusion of nutrition information on prepacked foods was 
voluntary unless a nutrition claim was made and where the nutrition claim was made 
for sugars, it was to include the amounts of sugar. Directive 90/496/EEC has been 
repealed and replaced by Regulation  (EU) No 1169/2011  of the European Parliament 
and of the Council9. Pursuant to that Regulation the provision of nutrition information 
on packaging is now mandatory. Therefore, a specific provision on sugar labelling is 
no longer necessary in Directive 2001 /113/EC and it is appropriate to delete it.  
(15) Part I of Annex I to Directive 2001/113/EC lays down the minimum quantity of fruit 
to be used in the manufacture of jam, jelly, extra jam or extra jelly. The use of the 
terms ‘extra jam’ and ‘extra jelly’ is reserved for products manufactured with a higher 
quantity of fruit compared to ‘jam’ and ‘jelly’, respectively. Part II of that Annex sets 
the minimum content of soluble dry matter ( i.e. sugars whether naturally occurring in 
the fruit or added) for those products, and, in order to take into account existing 
national traditions in the making of fruit jams, jellies and marmalades and sweetened 
chestnut purée, it allows Member States to authorise a lower minimum content of 
soluble dry matter.  
(16) Where the q uantity of fruit used to manufacture jams and jellies is increased, the 
amount of added sugar needed to reach the minimum content of soluble dry matter in 
these products is reduced. In order to stimulate the production of jams with an 
increased level of fr uit content and thus support the fruit market while taking into 
account the need to reduce free sugar content, the minimum quantity of fruit to be used 
in the manufacture of jam, and extra jam laid down in Annex I to Directive 
2001/113/EC should be increas ed. In order to stimulate the production of jellies with 
an increased level of fruit content and thus support the fruit market, the minimum 
quantity of fruit to be used in the manufacture of jelly and extra jelly laid down in 
Annex I to Directive 2001/113/ EC should be increased.  Similarly, in view of helping 
consumers to make better informed, healthy food choices, it is appropriate to authorise 
the use of the reserved names defined in Part I of that Annex for products which have 
                                                 
7 Council Directive 2001/113/EC of 20 December 2001 relating to fruit jams, jellies and marmalades and 
sweetened chestnut purée intended for human consumption (OJ L 10,  12.1.2002, p. 67).  
8 Council Directive 90/496/EEC of 24 September 1990 on nutrition labelling for foodstuffs (OJ L 276, 
6.10.1990, p. 40).  
9 Regulation (EU) No 1169/2011 of the European Parliament and of the Council of 25 October 2011 on 
the provision of food information to consumers, amending Regulations (EC) No 1924/2006 and (EC) 
No 1925/2006 of the European Parliament and of the Council, and repealing Commission Directive 
87/250/EEC, Council Directive 90/496/EEC, Commission Directive 1999/10/EC, Directi ve 2000/13/EC 
of the European Parliament and of the Council, Commission Directives 2002/67/EC and 2008/5/EC and 
Commission Regulation (EC) No 608/2004 (OJ L 304, 22.11.2011, p. 18).  EN 19  EN a soluble dry matter content  of less than 60  % but meet the conditions applying to the 
nutrition claim ‘reduced sugars’ laid down in the Annex to Regulation (EC) No 
1924/2006 as regards reduced sugar.  
(17) Annex I to Directive 2001/113/EC restricts the term ‘marmalade’ to a particula r citrus 
fruit mixture. However, in a number of official languages of the Union, while the legal 
names laid down in that Annex have been used in trade to designate the products 
referred to therein, the society at large uses interchangeably the terms ‘marma lade’ and 
‘jam’ to refer to jams from fruits other than citrus fruits. In order to take into account 
these practices where it is the case, Member States should be able to authorise that the 
term ‘marmalade’ may be used for the product name ‘jam’. In order to avoid consumer 
confusion, the term ‘citrus marmalade’ should be used across the Union for the 
product until now defined as ‘marmalade’ in order to distinguish the two product 
categories. This is also in line with the international standard reflected in the Codex 
General Standard for jams, jellies and marmalades, (Codex Stan 296 -2009), adopted 
by the Codex Alimentarius Commission during its 32nd session held from 29 June to 4 
July 2009, which establishes a distinction between citrus marmalade and non -citrus 
marmalade. It is therefore appropriate to revise that Directive accordingly as regards 
the product name ‘marmalade’.  
(18) Annex II to that Directive  lists the additional ingredients that may be used in the 
manufacturing of products covered by the Direct ive. Citrus fruit juice may be used as 
acidifying agent in jam, extra jam, jelly and extra jelly obtained from other types of 
fruit. Compared to juice not from concentrate, citrus fruit juice in its concentrated form 
is less voluminous and less heavy to tr ansport, more stable, can be preserved a longer 
time and requires less energy consumption to evaporate the water content when 
manufacturing the final jam or jelly product. Its use in jam, extra jam, jelly and extra 
jelly production is therefore more sustai nable than fresh citrus fruit juice. Therefore, it 
is appropriate to add concentrated citrus fruit juice in the list of additional ingredients 
laid down in that Annex.  
(19) Council Directive 2001/114/EC10 lays down definitions and common rules governing 
the composition, manufacturing specifications and labelling of certain preserved milk.  
(20) Point 3 of Annex I to Directive 2001/114/EC lists the treatments authorised to partly 
or wholly dehydrate preserved milk. In order to respond to evolving consumers’ ne eds, 
a treatment to produce lactose -free milk products should be authorised. Furthermore, 
the particular designation for the English term ‘evaporated milk’ in Annex II to that 
Directive should be aligned with the international standards defined in the Code x 
Standard for evaporated milks (Codex Stan 281 -1971).  
(21) Directives 2001/110/EC, 2001/112/EC, 2001/113/EC and 2001/114/EC contain 
references to repealed acts. Directive 2000/13/EC of the European Parliament and of 
the Council11 was repealed and replaced by Regulation (EU) No 1169/2011. Council 
Directive 89/107/EEC12 and European Parliament and Council Directive No 95/2/EC13 
                                                 
10 Council Directive 2001/114/EC of 20 December 2001 relating to certain pa rtly or wholly dehydrated 
preserved milk for human consumption (OJ L 15, 17.1.2002, p. 19).  
11 Directive 2000/13/EC of the European Parliament and of the Council of 20 March 2000 on the 
approximation of the laws of the Member States relating to the labellin g, presentation and advertising of 
foodstuffs (OJ L 109, 6.5.2000, p. 29).  
12 Council Directive 89/107/EEC of 21 December 1988 on the approximation of the laws of the Member 
States concerning food additives authorized for use in foodstuffs intended for huma n consumption (OJ 
L 40, 11.2.1989, p. 27).  EN 20  EN were repealed and replaced by Regulation (EC) No 1333/2008 of the European 
Parliament and of the Council14. Those references should ther efore be replaced by 
references to the relevant provisions of Regulations (EU) No 1169/2011 and (EC) No 
1333/2008.  
(22) Directives 2001/110/EC, 2001/112/EC, 2001/113/EC and 2001/114/EC should 
therefore be amended accordingly.  
(23) In order to allow Member States to adopt national laws, regulations and administrative 
provisions necessary to comply with this Directive, a transposition period of 18 
months should be established. In order to allow operators to sufficient time to adjust to 
the new requirements, t hose national provisions transposing this Directive should only 
apply from 24 months after the date of entry into force of this Directive.  
(24) In order to take into account the interests of economic operators who place on the 
market or label their products in accordance with the requirements applicable before 
the application of the national provisions transposing this Directive, it is necessary to 
establish appropriate transitional measures. Therefore, this Directive should provide 
that those produc ts may continue to be marketed for a limited time beyond the 
transposition period,  
HAVE ADOPTED THIS DIRECTIVE:  
Article 1  
Amendments to Directive 2001/110/EC  
Article 2 of Directive 2001/110/EC is amended as follows:  
(1) the introductory sentence is replace d by the following:  
‘Regulation (EU) No 1169/2011 of the European Parliament and of the Council* 
shall apply to the products defined in Annex I to this Directive, subject to the 
following conditions:  
___________  
* Regulation (EU) No 1169/2011 of the Europe an Parliament and of the Council of 
25 October 2011 on the provision of food information to consumers (OJ L 304, 
22.11.2011, p. 18).’;  
(2) in paragraph 4, points (a) and (b) are replaced by the following:  
‘(a) The country of origin where the honey has been  harvested shall be indicated on 
the label . If the honey originates in more than one country, the countries of origin 
where the honey has been harvested shall be indicated on the label  of packs 
containing more than 25 g ; 
(b) For the purposes of Regulation (EU) No 1169/2011 and in particular Articles 12 
to 15 thereof, the particulars to be indicated according to point (a) of this paragraph 
shall be considered as mandatory particulars in  accordance with  Article 9 of that 
Regulation.’.  
                                                                                                                                                         
13 European Parliament and Council Directive No 95/2/EC of 20 February 1995 on food additives other 
than colours and sweeteners (OJ L 61, 18.3.1995, p. 1).  
14 Regulation (EC) No 1333/2008 of the European Parliament and of the Council of 16 December 2008 on 
food additives (OJ L 354, 31.12.2008, p. 16).  EN 21  EN Article 2  
Amendments to Directive 2001/112/EC  
Directive 2001/112/EC is amended as follows:  
(1) Article 3 is amended as follows:  
(a) the introductory sentence is replaced by the following:  
‘Regulation (EU) No 1169/2011 of the European Parliament and of the 
Council* shall apply to the products defined in Annex I to this Directive, 
subject to the following conditions:  
___________  
* Regulation (EU) No 1169/2011 of the European Parliament and of the 
Council of 25 October 2011 on the provision of food information to consumers 
(OJ L 304,  22.11.2011, p. 18).’;  
(b) in paragraph 1, point (b), is replaced by the following:  
‘(b) As an alternative to the product names referred to in subparagraph (a), 
Annex III provides a list of particular designations. The designations listed in 
Annex III, Par t I, may be used in the language and under the conditions laid 
down therein. The designations listed in Annex III, Part II, may be used in the 
official language of the Union of the Member State where the product is placed 
on the market .’; 
(c) the following  paragraph 4 is inserted:  
‘4. Without prejudice to Regulation (EC) No 1924/2006 of the European 
Parliament and of the Council**, the statement ‘no fruit juices contain added 
sugars’ may appear on the label in the same field of vision as the name of the 
products referred to in Part I, point 1, of Annex I to this Directive.  
** Regulation (EC) No 1924/2006 of the European Parliament and of the 
Council of 20 December 2006 on nutrition and health claims made on foods 
(OJ L 404, 30.12.2006, p. 9).’;  
(d) paragraph  6 is replaced by the following:  
‘6. Without prejudice to Article 22 of Regulation (EU) No 1169/2011 for 
mixtures of fruit juice and fruit juice from concentrate, and for fruit nectar 
obtained entirely or partly from one or more concentrated products, the 
labelling shall bear the words ‘from concentrate(s)’ or ‘partially from 
concentrate(s)’, as appropriate. That information shall be entered close to the 
product name, standing out well from any background, in clearly visible 
characters.’;  
(2) Article 6 is r eplaced by the following:  
‘Article 6  
Without prejudice to Regulation (EC) No 1333/2008, only the treatments and 
substances listed in Part II of Annex I to this Directive and the raw materials 
complying with Annex II to this Directive may be used to manufacture the products 
defined in Part I of that Annex I. Moreover, fruit nectars shall comply with the 
provisions of Annex IV to this Directive.’;  
(3) Annexes I and III are amended in accordance with Annex I  to this Directive ; EN 22  EN (4) in Annex V, the follow ing row is inserted in alphabetical order:  
‘ 
Coconut (*)  Cocos nucifera  4,5 
’. 
Article 3  
Amendments to Directive 2001/113/EC  
Directive 2001/113/EC is amended as follows:  
(1) Article 2 is amended as follows:  
(a) the introductory sentence is replaced by the  following:  
‘Regulation (EU) No 1169/2011 of the European Parliament and of the 
Council* shall apply to the products defined in Annex I to this Directive , 
subject to the following conditions:  
___________  
* Regulation (EU) No 1169/2011 of the European Parli ament and of the 
Council of 25 October 2011 on the provision of food information to consumers 
(OJ L 304, 22.11.2011, p. 18).’;  
(b) paragraph 4 is deleted;  
(c) paragraph 6 is replaced by the following:  
‘6. Where the residual content of sulphur dioxide is mo re than 10 mg/kg, its 
presence shall be indicated on the list of ingredients by way of derogation from 
Article 20 of Regulation (EU) No 1169/2011.’;  
(2) Article 4 is replaced by the following:  
‘Article 4  
Without prejudice to Regulation (EC) No 1333/2008 of  the European Parliament and 
of the Council**, only the ingredients listed in Annex II to this Directive and raw 
materials which comply with Annex III to this Directive may be used in the 
manufacture of the products defined in Annex I to this Directive.  
___________  
** Regulation (EC) 1333/2008 of the European Parliament and of the Council of 16 
December 2008 on food additives (OJ L 354, 31.12.2008, p. 16).’;  
(3) Annex I is amended in accordance with Annex II to this Directive;  
(4) in Annex II, the third i ndent is replaced by the following:  
‘– citrus fruit juice, whether or not concentrated: in products obtained from other 
types of fruit: only in jam, extra jam, jelly and extra jelly,’;  
(5) in Annex III, Part B, point 1, the fourth indent is replaced by the  following:  
‘— with the exception of the raw materials used in the manufacture of ‘extra’ 
products: the use of sulphur dioxide (E 220) or its salts (E 221, E 222, E 223, E 224, 
E 226 and E 227) as an aid to manufacture provided that the maximum sulphur -EN 23  EN dioxide content laid down in Regulation (EC) No 1333/2008 is not exceeded in the 
products defined in part I of Annex I.’.  
Article 4  
Amendments to Directive 2001/114/EC  
Directive 2001/114/EC is amended as follows:  
(1) in Article 3, the introductory sentence is  replaced by the following:  
‘Regulation (EU) No 1169/2011 of the European Parliament and of the Council* 
shall apply to the products defined in Annex I to this Directive , subject to the 
following conditions:  
___________  
* Regulation (EU) No 1169/2011 of th e European Parliament and of the Council of 
25 October 2011 on the provision of food information to consumers (OJ L 304, 
22.11.2011, p. 18).’;  
(2) in Annex I, point 3, the following point is added:  
‘(d) Reduction of the lactose content by conversion to glu cose and galactose. 
Modifications in the composition of milk following this treatment shall be allowed 
only if they are indelibly indicated on the packing of the product so that it can be 
easily seen and read. However, such indication shall not remove the obligation as 
regards nutrition labelling laid down by Regulation (EU) No 1169/2011. Member 
States may limit or prohibit modifications to the composition of milk referred to in 
this point (d) .’; 
(3) in Annex II, point (a) is replaced by the following:  
‘(a) The English term ‘evaporated milk’ means the product defined in Annex I, point 
(1)(b).’.  
Article 5  
Transposition  
1. Member States shall adopt and publish, by [ OP please insert the date = 18 months 
after the date of entry into force of this Directive] at t he latest, the laws, regulations 
and administrative provisions necessary to comply with this Directive. They shall 
forthwith communicate to the Commission the text of those provisions.  
They shall apply those provisions from [ OP please insert the date = 24 months after 
the date of entry into force of this Directive].  
When Member States adopt those provisions, they shall contain a reference to this 
Directive or be accompanied by such a reference on the occasion of their official 
publication. Member States sha ll determine how such reference is to be made.  
2. Member States shall communicate to the Commission the text of the main provisions 
of national law which they adopt in the field covered by this Directive.  EN 24  EN Article 6  
Transitional measures  
Products which are placed on the market or labelled before [ OP please insert the date = 24 
months after the date of entry into force of this Directive], in accordance with Directives 
2001/110/EC, 2001/112/EC, 2001/113/EC and 2001/114/EC, may continue to be marketed 
until the  exhaustion of stocks.  
Article 7  
Entry into force  
This Directive shall enter into force on the twentieth day following that of its publication in 
the Official Journal of the European Union . 
Article 8  
Addressees  
This Directive is addressed to the Member Sta tes. 
Done at Brussels,  
For the European Parliament  For the Council  
The President  The President