Proposal for a Council Regulation on actions in the field of beekeeping
Date: 2004-01-23
Institutions: European Commission
Subjects: agricultural production, apiculture, honey, marketing, production improvement

COMMISSION OF THE EUROPEAN COMMUNITIES 

Brussels, 23.01.2004 
COM(2004) 30 final 

2004/0003 (CNS) 

SECOND REPORT FROM THE COMMISSION TO THE COUNCIL 
AND THE EUROPEAN PARLIAMENT 

on the implementation of Council Regulation (EC) No 1221/97 
laying down general rules for the application of measures to 
improve the production and marketing of honey 

Proposal for a 

COUNCIL REGULATION 

on actions in the field of beekeeping 

(presented by the Commission) 

EN 

   EN 

 
 
 
  
  
EXPLANATORY MEMORANDUM 

Under Article 6 of Council Regulation (EC) No 1221/97 the Commission is to present to the 
European Parliament and the Council every three years a report on the implementation of the 
beekeeping aid scheme. 

The  Commission  hereby  presents  the  second  report.  In  its  conclusions,  the  Commission 
proposes that a new Regulation be adopted in order to adapt the objectives in the beekeeping 
sector to the current situation. 

The  aim  of  this  proposal  is  to  improve  the  conditions  for  the  production  and  marketing  of 
honey  in  the  European  Union.  This  objective  may  be  achieved  by  means  of  three-year 
national  programmes  which  include  measures  in  the  field  of  technical  assistance,  control  of 
varroasis, rationalisation of transhumance, restocking hives and applied research in the field 
of beekeeping and apiculture products. 

The control of varroasis is not an eradication measure but aims to reduce the economic impact 
of this disease caused by a parasite on the profitability of production. 

In  order  to  be  eligible  for  the  Community  part-financing  for  the  national  programmes,  the 
Member States must draw up and forward to the Commission a study on the structure of the 
sector, the production and marketing of the products and on the measures they plan to carry 
out. 

The Member States must also send the Commission statistical data on these programmes. 

2 

 
 
  
 
SECOND REPORT FROM THE COMMISSION TO THE COUNCIL 
AND THE EUROPEAN PARLIAMENT 

on the implementation of Council Regulation (EC) No 1221/97 
laying down general rules for the application of measures to 
improve the production and marketing of honey 

TABLE OF CONTENTS 

1. 

2. 

2.1. 

2.2. 

INTRODUCTION.............................................................................................................. 4 

WORLD SITUATION........................................................................................................ 4 

Production .................................................................................................................... 4 

Trade ............................................................................................................................ 5 

2.2.1.  Exports ......................................................................................................................... 5 

2.2.2. 

Imports ......................................................................................................................... 5 

3. 

3.1. 

3.2. 

4. 

4.1. 

4.2. 

4.3. 

SITUATION IN THE EUROPEAN UNION ........................................................................... 5 

Supply balance ............................................................................................................. 5 

Inventory of producers ................................................................................................. 5 

APPLICATION OF HONEY PROGRAMMES......................................................................... 6 

Expenditure forecasts ................................................................................................... 6 

Expenditure .................................................................................................................. 7 

Assessment................................................................................................................... 7 

4.3.1.  Objectives of the measures........................................................................................... 7 

4.3.2.  Analysis of expenditures by measure – results achieved ............................................. 8 

4.3.3.  Suggestions made by the Member States..................................................................... 9 

5. 

6. 

6.1. 

6.2. 

DIFFICULTIES AND DEMANDS ...................................................................................... 10 

OUTLOOK AND PROPOSALS ......................................................................................... 11 

Outlook....................................................................................................................... 11 

Proposals .................................................................................................................... 11 

The  annexes  to  this  report  are  to  be  found  in  a  separate  document  available  in  French  and 
English 
the  DG  Agriculture  web  site 
from  DG  Agriculture  on  paper  or  on 
http://europa.eu.int/comm/agriculture/markets/honey/index_fr.htm. 

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1. 

INTRODUCTION 

In February 2001, the Commission adopted the first report on the implementation of Council 
Regulation (EC) No 1221/971, evaluating the first three years of its implementation. 

In June 1997 the Council adopted Regulation (EC) No 1221/972 with a view to improving the 
production  and  marketing  of  honey  in  the  European  Union.  Under  this  Regulation,  the 
Member  States  voluntarily  drew  up  annual  national  programmes  (hereinafter  referred  to  as 
"honey programmes") based on the following five  priorities:  technical assistance, control of 
varroasis,  rationalisation  of  transhumance,  measures  to  support  laboratories  carrying  out 
analyses on honey, and applied research to improve the quality of honey. 

in  Regulation  (EC)  No 2300/973 
In  November  1997, 
implementing rules on the contents of the honey programmes, the date on which programmes 
were to be notified, the allocation of Community part-financing and details of the studies of 
the structure of the sector, among other things. 

the  Commission 

laid  down 

The Member States carried out studies of the structure of the sector, focusing in particular on 
production structures, marketing and price formation. 

Under Article 6 of Regulation (EC) No 1221/97, the Commission must present a report to the 
European  Parliament  and  the  Council  every  three  years  on  the  implementation  of  the 
Regulation. This report fulfils that obligation. 

2. 

WORLD SITUATION 

The  world’s  major  producer  region  is  Asia,  followed  by  Europe  and  Northern  and  Central 
America  (Table  1).  In  the  context  of  world  trade,  China  is  the  major  exporter  and  the 
European Union is the major importer. 

2.1. 

Production 

According  to  FAO  statistics  (Table  1),  world  honey  production  in  2002  totalled 
1 268 000 tonnes. It increased by 6.8% in the period 1998–2002. 

In 2002 the European Union was the third largest producer, with 112 000 tonnes, after China 
(258 000 tonnes) and the Newly Independent States (136 000 tonnes) (Table 2). Other major 
producers are the United States (100 000 tonnes) and Argentina (85 000 tonnes). 

1 
2 

3 

COM(2001) 70 final. 
OJ L 173, 1.7.1997, p. 1. Regulation as amended by Regulation (EC) No 2070/98 (OJ L 265, 30.9.1998, 
p. 1). 
OJ L 319, 21.11.1997, p. 4. Regulation as last amended by Regulation (EC) No 1438/2000 (OJ L 161, 
1.7.2000, p. 65). 

4 

 
 
  
 
                                                 
2.2. 

Trade 

World  trade  accounts  for  about  one  third  of  total  honey  production  according  to  FAO  and 
Comext figures. 

2.2.1.  Exports 

Global exports of honey were 360 000 tonnes in 2001 (Table 3). China exported 41% of its 
output in 2001, accounting for 30% of total world trade. 

The main markets for Chinese honey are, in order of importance, Japan, the United States and 
Germany. However, health restrictions imposed on Chinese honey following the discovery of 
banned substances in animal products from China, and smaller harvests in the past few years, 
have contributed to changes in world export flows. 

2.2.2. 

Imports 

World honey imports amounted to almost 360 000 tonnes in 2001 (Table 4). The main import 
market is the European Union, which absorbed 44% of global honey imports in 2001. Almost 
75%  of  the  EU’s  total  honey  imports  in  2001  went  to  Germany  (92 000  tonnes)  and  the 
United Kingdom (23 000 tonnes) (Table 6). 

Global imports have been rising steadily since the end of the 1970s (Figure 2) with increased 
consumption of natural and dietary products, efforts on the part of certain traders to introduce 
speciality honey, or low-price honey, usually in the form of blends, and increased industrial 
use of honey in certain countries. 

3. 

SITUATION IN THE EUROPEAN UNION 

3.1. 

Supply balance 

The EU has a honey deficit and must usually import about half of the honey consumed, self-
sufficiency in 2001/02 being 45.9% (Table 5). 

The  Union’s  three  major  honey  producers  are  Spain,  Germany  and  France,  with 
33 000 tonnes,  26 000  tonnes  and  25 000  tonnes  of  honey  respectively  in  2001/02.  Honey 
production in the European Union was steady from 1999 to 2002. 

While  honey  imports  remained  stable  in  1998–2002  overall,  Argentina  became  the  EU’s 
leading supplier, accounting for 36% of total Community honey imports in 2002, and China 
slipped into fourth place (9%), behind Mexico (12%) and Hungary (10%) (Table 6). 

The Community exports about 8 000 tonnes, representing just 6% of output in 2002 (Table 7). 

3.2. 

Inventory of producers 

According  to  data  notified  by  the  Member  States,  the  total  number  of  beekeepers  in  the 
Community in 1999 was 460 000, 14 350 of whom were declared as professional beekeepers. 
Professional beekeepers, in this context, are those who operate at least 150 hives. 

In  2003,  according  to  the  same  sources,  the  total  number  of  beekeepers  was  470 000, 
15 270 of  whom  were  professionals,  meaning  an  increase  of  2%  in  the  total  number  of 

5 

 
 
  
 
Community  beekeepers  and  a  6.4%  rise  in  the  number  of  professionals  (Table  8).  Over  the 
period 1992 to 1999, however, the total number of beekeepers had increased by 5.7%, giving 
an extra 25 010. 

In the 1999–2003 period, the number of hives increased by 2.5% to 8 877 209. Professional 
beekeepers operate more than 3 880 000 hives, or 43.7% of all European hives. The Member 
State  with  the  largest  number  of  hives  is  Spain  (almost  2 400 000),  followed  by  Greece 
(1 380 000) and France (almost 1 300 000). 

In terms of the ratio of the number of hives operated by professionals to the total number of 
hives,  the  highest  rate  of  professional  beekeeping  is  found  in  Spain  (74%),  followed  by 
Greece  and  Portugal  (over  50%).  These  three  Member  States  together  account  for  74%  of 
professionally-operated hives in the European Union. 

In  absolute  terms,  professional  beekeepers  are  concentrated  in  three  Member  States:  Spain 
(29% of the total number of professional beekeepers), Greece (26%) and France (19%). 

To  conclude,  there  has  been  a  real  increase  in  the  sector,  although  some  experts  claim  the 
increase  observed  is  due  to  improved  beekeeping  statistics.  On  average,  the  number  of 
professionally  operated  hives  in  the  European  Union  has  increased  by  5.7%  in  the  period 
1999–2003, while the professional beekeeping rate has remained stable (42–44%), indicating 
a slight trend towards expansion of professional bee farms. 

4. 

IMPLEMENTATION OF HONEY PROGRAMMES 

In the first report on the implementation of honey programmes, the Commission pointed out 
that these programmes had had a qualitative impact on the beekeeping sector, that it would be 
desirable to reinforce collaboration between the authorities in certain Member States and the 
beekeepers’  representative  organisations  and  cooperatives,  and  that  it  appeared  necessary  to 
simplify the management of the honey programmes. 

Following  these  conclusions,  the  Commission  adopted  an  amendment4  to  Regulation  (EC) 
No 2300/97  to  allow  the  Member  States  to  continue  their  honey  programmes  from  the 
previous year simply by notifying any amendments or adjustments. 

4.1. 

Expenditure forecasts 

As provided for in Article 2 of Regulation (EC) No 2300/97, the Member States notify their 
programmes to the Commission by 15 April each year. The programmes notified must state 
estimated costs and provide a financing plan. 

On the basis of the Member States’ expenditure forecasts, available funds are distributed as a 
function of each Member State’s share in the total number of beehives in the Community, as 
shown  in  Annex  I  to  Regulation  (EC)  No  2300/97.  The  decisions  approving  the  honey 
programmes come into force on 1 September each year. 

4 

Regulation (EC) No 704/2001 (OJ L 98, 7.4.2001, p. 14). 

6 

 
 
  
 
                                                 
In 2001–2003, the four Member States with the largest bee population (Spain, France, Greece 
and  Italy)  used  more  than  70%  of  the  Community  funds  available  each  year.  For  the  2003 
programme,  Spain  planned  expenditure  corresponding  to  26.5%  of  Community  funding, 
France 16.2%, and Greece and Italy 14% each (Table 11). 

Control  of  varroasis  is  the  largest  expenditure  item  in  most  Member  States,  accounting  for 
41%  of  programmed  expenditure  at  European  level.  Technical  assistance  comes  next  with 
26%,  and  then  transhumance  with  20%,  followed  by  honey  analyses  (6%)  and  applied 
research projects (7%). 

In 2001–2003, expenditure forecasts for the five types of measure did not show much change 
at  Union  level  (Figure  3).  However,  there  was  a  more  marked  increase  in  forecasts  for 
technical assistance and transhumance, a smaller increase for varroasis control and a decrease 
for analyses and applied research. 

In  2003,  Greece  and  Italy  applied  for  34%  and  17%  respectively  of  total  Community 
expenditure on technical assistance for beekeepers. Of the total requested for varroasis control 
in 2003, Spain applied for 28%, Portugal 14% and France 11%. Spain accounted for 50% of 
total  Community  expenditure  on  the  rationalisation  of  transhumance,  Italy  24%  and  France 
18%.  As  for  measures  to  support  laboratories  carrying  out  analyses,  France  accounted  for 
34% of the total Community expenditure and Spain 25%. France accounted for 47% of total 
Community expenditure on research projects to improve the quality of honey, and Italy and 
Germany 14%. 

4.2. 

Expenditure 

The  honey  programmes  must  be  implemented  before  31  August  each  year,  and  the  relevant 
payments made by 15 October, as provided for in Article 2 of Regulation (EC) No 2300/97. 
At the time of drafting this report, final data for the 2003 programme was not available. 

In 2002, execution of measures under the Member States’ programmes amounted to 83% of 
total  planned  expenditure  (Table  12).  Two  Member  States  implemented  the  full  amount: 
Denmark  and  Finland.  Among  the  Member  States  that  account  for  the  bulk  of  the  budget, 
Spain implemented 90.2% of planned expenditure and Italy 90%. However, a large share of 
the budget in both Greece and France remained unutilised, with implementation at 77.8% and 
68%  respectively  of  estimated  expenditure.  While  the  rate  of  implementation  of  the  honey 
programmes  has  noticeably  improved  in  some  Member  States,  15–17%  of  the  budget 
allocated remains unused. 

4.3. 

Assessment 

4.3.1.  Objectives of the measures 

While the overall objective is to improve the production and marketing of honey, the specific 
objectives differ according to the priority measures. 

Technical  assistance  is  designed  to  enhance  the  efficiency  of  production  and  marketing,  by 
introducing  better  techniques.  Courses  and  other  training  measures  for  beekeepers  and  those 
responsible  for  groupings  or  cooperatives  relate  in  particular  to  such  areas  as  breeding  and 
disease  prevention,  collection  and  packaging,  storage  and  transport  of  honey  and  marketing. 
Most of the Member States considered that the resources of the beekeeping associations should 
be reinforced to enable them to respond to the great demand for these courses. 

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The  aim  of  control  of  varroasis  and  related  diseases  is  to  reduce  the  expenditure  incurred  in 
treating hives. The disease is caused by a parasite and is severely diminishing the honey yield in 
the European Union, leading to the loss of entire bee colonies if not treated. Colonies weakened 
by  varroasis  are  also  prone  to  related  diseases  now  emerging5.  As  varroasis  cannot  be 
completely  eradicated,  the  only  way  to  avoid  its  consequences  is  to  treat  hives  with  approved 
products  (those  that  do  not  leave  any  residue  in  the  honey).  A  financial  contribution  was  also 
considered necessary to ensure that beekeepers do not treat hives with unauthorised chemicals or 
ineffective remedies. 

Aid for the rationalisation of transhumance is intended to assist with managing the movement of 
hives in the Community and with providing locations for the strong concentration of beekeepers 
during the flowering season. Transhumance management can be facilitated by such measures as 
a transhumance register, investment in equipment and maps of honey varieties. 

Support measures for carrying out analyses of honey are intended to improve the marketing of 
honey.  Financing  of  analyses  of  the  physico-chemical  properties  of  honey  according  to  its 
botanical  origin  provides  beekeepers  with  precise  knowledge  of  the  quality  of  the  honey 
harvested, and enables them to get a higher price for their product. 

The opportunity provided by the Regulation for including specific applied research projects for 
improving  honey  quality  in  the  honey  programmes,  and  dissemination  of  the  results  of  such 
projects, can help to increase producer incomes in particular regions. 

4.3.2.  Analysis of expenditures by measure – results achieved 

On  average  over  the  2001–2003  period,  forecasts  of  expenditure  by  type  of  measure 
(Figure 3)  show  that  the  control  of  varroasis  absorbed  a  key  share  (41%)  of  expenditure 
programmed  by  the  Member  States.  Technical  assistance  came  next  with  26%,  and  then 
transhumance with 20%, followed by honey analyses (6%) and applied research projects (7%) 
(Table 11). 

The  breakdown  of  implementation  of  expenditure  by  type  of  measure  in  2002  (Table  13) 
shows that control of varroasis absorbed 46% of total expenditure under the Member States’ 
programmes,  followed  by  technical  assistance  (23%)  and  rationalisation  of  transhumance 
(19%).  Applied  research  projects  accounted  for  7%  of  total  expenditure,  and  analyses  of 
honey 5%. 

The  comparative  study  of  the  implementation  of  expenditure  in  1998–2002  shows  a 
stabilisation in the level of expenditure after an initial, more unstable period in implementing 
the honey programmes. As stated, much of the budget goes to varroasis control, followed by 
technical assistance and the rationalisation of transhumance. 

The data provided by the Member States, although incomplete, helps to assess the measures 
as a whole. 

Technical  assistance  is  planned  in  11  out  of  the  15  programmes  presented  by  the  Member 
States.  The  main  technical  assistance  measures  planned  are  training  for  beekeepers  and 
technical advisors, dissemination of information and studies, and practical demonstrations of 
beekeeping techniques (Table 14–A). 

5 

The  term  ‘related  diseases’  refers  to  secondary  infections  whose  transmission  is  directly  linked  to 
varroasis (e.g. Acute Viral Paralysis, AVP). 

8 

 
 
  
 
                                                 
Of the four Member States planning to spend most funding on this field (Greece, Italy, France 
and Spain) only Italy and Spain have communicated comparable figures for 1998–2000 and 
2001–2003. A study of these figures shows a fall in the number of courses and information 
brochures in Spain and a rise in Italy. 

For  varroasis  control,  the  wide  variety  of  measures  applied  by  the  Member  States  can  be 
classified  into  three  main  types  of  approach: aid  for  the  application  of  chemical  treatments, 
experiments and research into alternative methods of control, and on-site monitoring by bee 
experts (Table 14–B). On average, the number of hives treated in Spain and Germany almost 
tripled from 1998–2000 to 2001–2003, while in Austria and Portugal it fell by 16% and 7% 
respectively. 

Rationalisation  of  transhumance  seems  to  have  been  successful  in  certain  Member  States 
which  invested  in  special  equipment  for  this  method  of  production  or  in  restocking  hives 
(Table 14–C). Although this measure is the least requested by all Member States, it actually 
shows the largest rise in forecast expenditure. 

Honey  analyses  and  research  projects  to  improve  honey  quality  account  for  smaller 
percentages  of  total  expenditure.  However,  these  measures  help  beekeepers  to  add  value  to 
their honey on marketing. The main focuses are assistance for honey analyses and for research 
into analysis methods and the detection of residues (Table 14–D and E). 

4.3.3. 

Suggestions made by the Member States 

All Member States have submitted national honey programmes since this Regulation entered 
into application. 

The main suggestions made by the Member States are: 

– 

– 

– 

– 

improved  statistics  (Spain,  France,  Italy).  However,  this  scheme  already  requires 
Member  States  to  present  a  study  on  the  sector  in  order  to  be  eligible  for  part-
financing. Precise criteria are set out in the implementing regulation. Nevertheless, it 
might  prove  necessary  to  update  some  of  these  criteria  after  several  years  of 
implementation; 

control of other bee diseases (Greece, Spain, Italy and the Netherlands). It must be 
clear that it is not the goal of this scheme to create a health policy in the sector. This 
would  be  the  responsibility  of  the  Health  and  Consumer  Protection  Directorate-
General (DG SANCO); 

multiannual  management  of  honey  programmes  (Greece,  Ireland  and  Italy)  to 
simplify  programme  management.  However,  as  this  scheme  comes  under  market 
policy,  and  budget  management  is  carried  out  on  an  annual  basis,  expenditure 
forecasts and implementation would have to be kept on an annual basis; 

aid for breeding (Greece, France, Netherlands). Following an increase in mortality of 
bees  over  several  years,  some  programmes  provide  aid  for  restocking  hives. 
Moreover, Community beekeepers are unable to raise sufficient numbers of breeding 
stock to meet the sector’s needs. Assistance to encourage beekeepers to specialise in 
this type of production would appear to fill this vacuum; 

9 

 
 
  
 
– 

– 

include all products of the hive in the scheme and extend the field of application of 
applied research (Spain, Ireland). After several years of implementation of the honey 
programmes,  it  would  appear  that  other  products  of  the  hive  should  be  included  in 
this scheme to respond more fully to the difficulties in the beekeeping sector; 

some Member States propose new measures such as advertising campaigns (Greece, 
Spain), investments in holdings (Italy) and direct aids to promote beekeeping (Italy). 

5. 

DIFFICULTIES AND DEMANDS 

The sector’s comments can be summarised as follows. 

As a rule, Community beekeepers believe that the objectives of Regulation (EC) No 1221/97 
are not sufficient to guarantee the profitability of bee farms or to prevent the disappearance of 
professional beekeeping. 

Community  beekeeping  is  threatened  by  bee  diseases  which  are  more  and  more  difficult  to 
treat (resistance to the few products authorised) thus increasing production costs. Moreover, 
contamination by certain pesticides in many EU Member States has led to the disappearance 
of  a  large  part  of  the  bee  population  (restocking  hives  is  extremely  difficult  and  expensive) 
and to falls in productivity. 

There is a substantial difference between the prices of imported honeys and producer prices 
for  high-quality  European  honey,  which  may  increase  further  with  the  opening  up  of  the 
markets (China’s entry into the WTO, preferential agreements, etc.). 

Under  these  circumstances,  beekeeping  is  no  longer  an  attractive  activity,  even  though 
Community production covers under 50% of EU demand. Even part-time beekeepers are no 
longer motivated. 

The following suggestions have been made by the sector. 

Regulation (EC) No 1221/97 should be amended as follows: 

– 

– 

– 

– 

– 

– 

– 

extend the deadline for implementing eligible measures, 

guarantee the repopulation and development of hives, 

introduce a pollination premium, 

improve inventory, price and production cost statistics, 

compulsory application of this Regulation with 100% financing and publication of a 
guide so as to reduce the disparities between Member States, 

revise  the  procedure  for  approving  plant  health  products  to  take  greater  account  of 
the precautionary principle and their impact on bee populations, 

introduce an income premium to compensate income lost due to imports. 

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High-quality European honey should also be promoted under internal promotion policy, and 
by using PDOs, PGIs and TSGs. 

Moreover, beekeepers in some Member States regret that most efforts have been focused on 
measures  which  do  not  directly  benefit  beekeepers,  and  are  calling  for  the  involvement  of 
associations in drawing up the programme. 

6. 

OUTLOOK AND PROPOSALS 

6.1. 

Outlook 

The honey production sector has been characterised in recent years by stable production and a 
slight  increase  in  imports.  Average  prices  of  imports  increased  by  38%  in  1998–2002 
(Table 10).  Average  prices  weighted  at  the  different  stages  of  marketing  (Table  9)  do  not 
follow import prices in most Member States. 

European beekeeping is dependent on external suppliers since internal consumption is twice 
Community  output.  The  Union  is  the  world’s  major  import  market,  absorbing  44%  of  all 
honey imports. 

There  is  a  trend  towards  concentration  of  holdings  as  the  number  of  hives  operated  by 
professionals is increasing faster than the total number of hives in the European Union. In any 
event, the number of hives has increased. 

Control of varroasis remains the sector’s priority. Confusion with health legislation measures 
should be avoided. The conclusions of the group of experts in this field6 show that: 

– 

– 

– 

– 

chemical treatments are effective, provided they are rotated, 

harmonised  and  simplified  procedures  for  the  approval  of  new  active  ingredients 
would appear necessary, 

alternative treatments depend on weather conditions and the production system, and 

research into the selection of bees resistant to varroasis should be stepped up. 

6.2. 

Proposals 

Regulation (EC) No 1221/97 to improve production and marketing of honey in the European 
Union  seems  to  have  helped  the  beekeeping  sector.  This  sector  is  characterised  by  a  wide 
diversity  of  production  conditions,  and  by  the  dispersion  and  variety  of  players  both  at  the 
production and at the marketing stage. 

The priority measures in the Regulation, although limited from the budget point of view, have 
been valuable in terms of quality. The most popular measures in order of importance are the 
control of varroasis, technical assistance and the rationalisation of transhumance. 

It would appear appropriate to draw up national programmes for three-year periods and thus 
recognise  that,  in  practice,  there  is  a  strong  degree  of  similarity  between  programmes  from 
one year to the next. 

6 

Meeting of beekeeping experts on 24.10.2003. 

11 

 
 
  
 
                                                 
Some of the priority measures should be redefined in order to avoid misinterpretations when 
implementing them, and to adapt them to the current situation in European beekeeping. In this 
context,  a  new  measure  would  appear  necessary  to  promote  the  repopulation  of  hives  in 
decline in some regions. The honey analyses measure could be abolished. 

The  Commission  therefore  considers  it  appropriate  to  amend  Council  Regulation  (EC) 
No 1221/97 in line with the following proposal. 

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2004/0003 (CNS) 

Proposal for a 

COUNCIL REGULATION 

on actions in the field of beekeeping 

THE COUNCIL OF THE EUROPEAN UNION, 

Having  regard  to  the  Treaty  establishing  the  European  Community,  and  in  particular 
Articles 36 and 37 thereof, 

Having regard to the proposal from the Commission, 

Having regard to the opinion of the European Parliament, 

Having regard to the opinion of the European Economic and Social Committee, 

Whereas: 

(1) 

(2) 

(3) 

(4) 

(5) 

7 
8 

9 
10 

Following the Communication from the Commission to the Council and the European 
Parliament on European apiculture in 1994, the Council concluded that proposals were 
required for a framework Regulation on beekeeping7. 

In June 1997 the Council adopted Regulation (EC) No 1221/97 laying down general 
rules  for  the  application  of  measures  to  improve  the  production  and  marketing  of 
honey8. 

The  Commission  sent  the  Council  and  the  European  Parliament  reports  on  the 
implementation  of  Regulation  (EC)  No  1221/97  in  February  20019  and  January 
200410. The conclusions drawn from these reports show that the measures provided for 
by  Regulation  (EC)  No  1221/97  should  be  adapted  to  the  current  situation  in  the 
Community  beekeeping  sector.  That  Regulation  should  therefore  be  repealed  and 
replaced by a new one. 

Beekeeping  is  a  sector  of  agriculture,  the  main  functions  of  which  are  economic 
activity and rural development, the production of honey and other products of the hive 
and the maintenance of ecological balance. 

The sector is characterised by diversity of production conditions and yields, and by the 
dispersion and variety of producers and traders, both at the production and marketing 
stage. 

COM(1994) 256 final. 
OJ L 173, 1.7.1997, p. 1. Regulation as amended by Regulation (EC) No 2070/98 (OJ L 265, 30.9.1998, 
p. 1). 
COM(2001) 70 final, 16.2.2001. 
COM(2004) …. 

13 

 
 
  
 
                                                 
(6) 

(7) 

(8) 

(9) 

In  view  of  the  spread  of  varroasis  in  several  Member  States  in  recent  years  and  the 
problems which this disease causes for honey production, action by the Community is 
necessary  as  varroasis  cannot  be  completely  eradicated  and  treatment  with  approved 
products is recommended. 

Given  these  circumstances  and  in  order  to  improve  the  production  and  marketing  of 
apiculture products in the Community, national programmes should be drawn up every 
three  years  comprising  technical  assistance,  control  of  varroasis,  rationalisation  of 
transhumance,  management  of  the  restocking  of  hives  in  the  Community,  and 
cooperation on research programmes on beekeeping and apiculture products. 

In order to supplement the statistical data on beekeeping, Member States should carry 
out  studies  on  the  structure  of  the  sector,  covering  production,  marketing  and  price 
formation. 

Expenditure  by  the  Member  States  in  fulfilment  of  the  obligations  arising  from  this 
Regulation should be borne by the Community in accordance with Article 2(2) and (3) 
of  Council  Regulation  (EC)  No  1258/1999  of  17  May  1999  on  the  financing  of  the 
common agricultural policy11. 

(10)  Article  4  of  Council  Regulation  No  26  applying  certain  rules  of  competition  to 
production of and trade in agricultural products12 remains applicable to State aids other 
than those included in the programmes approved under this Regulation. 

(11)  The measures necessary for the implementation of this Regulation should be adopted 
in accordance with Council Decision 1999/468/EC of 28 June 1999 laying down the 
procedures  for  the  exercise  of  implementing  powers  conferred  to  the  Commission13. 
To this end the Commission is assisted by the Committee referred to in Article 17 of 
Council  Regulation  (EEC)  No  2771/75  of  29  October  1975  on  the  common 
organisation of the market in eggs14, 

HAS ADOPTED THIS REGULATION: 

Article 1 

1. 

This  Regulation  lays  down  measures  for  improving  general  conditions  for  the 
production and marketing of apiculture products. 

To this end, each Member State may draw up a national programme for a period of 
three years, hereinafter referred to as the "apiculture programme". 

11 
12 

13 
14 

OJ L 160, 26.6.1999, p. 103.  
OJ  30,  20.4.1962,  p.  993/62.  Regulation  as  last  amended  by  Regulation  No 49  (OJ  53,  1.7.1962, 
p. 1571/62). 
OJ L 184, 17.7.1999, p. 23. 
OJ L 282, 1.11.1975, p. 49. Regulation as last amended by Regulation (EC) No 806/2003 (OJ L 122, 
16.5.2003, p. 1). 

14 

 
 
  
 
                                                 
2. 

For the purpose of this Regulation: 

(a) 

(b) 

"honey" means the product which corresponds to the provisions of Annex I to 
Council Directive 2001/110/EC15. 

"apiculture  products"  means  the  products  defined  in  Annex  I,  point  1  of 
Regulation  (EC)  No  1774/2002  of  the  European  Parliament  and  of  the 
Council16. 

The measures which may be included in the apiculture programme shall be the following: 

Article 2 

(a) 

(b) 

(c) 

(d) 

(e) 

technical assistance to beekeepers and groupings of beekeepers, 

control of varroasis, 

rationalisation of transhumance; 

measures to support the restocking of hives in the Community, 

cooperation  with  specialised  bodies  for  the  implementation  of  applied  research 
programmes in the field of beekeeping and apiculture products. 

Measures  financed  under  Regulation  (EC)  No 1257/199917  shall  be  excluded  from  the 
apiculture programme. 

Article 3 

To be eligible for the part-financing provided for in Article 4(2), Member States shall carry 
out  a  study  of  the  production  and  marketing  structure  in  the  beekeeping  sector  in  their 
territory. This study shall be communicated with the apiculture programme. 

1. 

2. 

3. 

15 
16 

17 

Article 4 

Expenditure  made  in  accordance  with  this  Regulation  shall  be  considered  to  be 
intervention  within  the  meaning  of  Article  2(2)  and  (3)  of  Regulation  (EC) 
No 1258/1999. 

The  Community  shall  provide  part-financing  for  the  apiculture  programmes 
equivalent to 50% of the expenditure borne by Member States. 

Expenditure relating to the measures taken under the apiculture programmes must be 
made by the Member States by 15 October each year. 

OJ L 10, 12.1.2002, p. 10. 
OJ  L  273,  10.10.2002,  p.  1.  Regulation  as  amended  by  Regulation  (EC)  No  813/2003  (OJ  L  117, 
13.5.2003, p. 22). 
OJ L 160, 26.6.1999, p. 80. Regulation as last amended by Regulation (EC) No 1783/2003 (OJ L 270, 
21.10.2003, p. 70). 

15 

 
 
  
 
                                                 
Article 5 

The  apiculture  programme  shall  be  drawn  up  in  close  collaboration  with  the  representative 
organisations  and  beekeeping  cooperatives.  It  shall  be  communicated  to  the  Commission, 
which shall approve it in accordance with the procedure laid down in Article 17 of Regulation 
(EEC) No 2771/75. 

Article 6 

Detailed rules for the application of this Regulation, in particular those relating to monitoring 
and  communication  of  information,  shall  be  adopted  in  accordance  with  the  procedure  laid 
down in Article 17 of Regulation (EEC) No 2771/75. 

The Commission shall present to the European Parliament and the Council every three years a 
report on the implementation of this Regulation. 

Article 7 

Regulation (EC) No 1221/97 is hereby repealed. 

Article 8 

Article 9 

This Regulation shall enter into force on the seventh day following that of its publication in 
the Official Journal of the European Union. 

This Regulation shall be binding in its entirety and directly applicable in all Member States. 

Done at Brussels, 

For the Council 
The President 

16 

 
 
  
 
 
 
FINANCIAL STATEMENT 

BUDGET HEADING: 
05.03.04.07 (former nomenclature B1-2320) 

APPROPRIATIONS  
(2004 budget):  
EUR 16.5 million 

TITLE: 
Council Regulation on actions in the field of beekeeping 

LEGAL BASIS: 
Articles 36 and 37 of the EC Treaty 

AIMS: 
This  Regulation  lays  down  measures  for  improving  general  conditions  for  the  production  and 
marketing of apiculture products in each three-year period. 

1. 

2. 

3. 

4. 

5. 

FINANCIAL IMPLICATIONS 

5.0 

CHARGED TO THE EC BUDGET 

EXPENDITURE 
– 
(REFUNDS/INTERVENTIONS) 
– 
– 

NATIONAL AUTHORITIES 
OTHER 

12 MONTH 
PERIOD 

(EUR million) 
p.m. 

CURRENT  
FINANCIAL 
YEAR  2004 
(EUR million) 
p.m. 

FOLLOWING 
FINANCIAL 
YEAR  2005 
(EUR million) 
p.m. 

5.1  REVENUE 

– 

– 

– 

OWN RESOURCES OF THE EC 

– 
(LEVIES/CUSTOMS DUTIES) 
– 

NATIONAL 

5.0.1  ESTIMATED EXPENDITURE 
5.1.1  ESTIMATED REVENUE 

5.2  METHOD OF CALCULATION: 

– 

2006 
– 
– 

2007 
– 
– 

2008 
– 
– 

2009 
– 
– 

6.0  CAN THE PROJECT BE FINANCED FROM APPROPRIATIONS ENTERED IN 

THE RELEVANT CHAPTER OF THE CURRENT BUDGET? 

6.1  CAN THE PROJECT BE FINANCED BY TRANSFER BETWEEN CHAPTERS 

OF THE CURRENT BUDGET? 

6.2  WILL A SUPPLEMENTARY BUDGET BE NECESSARY? 

YES/ NO 

YES/ NO 

YES/ NO 

6.3  WILL APPROPRIATIONS NEED TO BE ENTERED IN FUTURE BUDGETS? 

YES/ NO 

OBSERVATIONS: 

The changes concern the programming period only. 

17