[pic] | COMMISSION OF THE EUROPEAN COMMUNITIES |

[pic] | IL-KUMMISSJONI TAL-KOMUNITAJIET EWROPEJ |

Brussels, 30.1.2008

Brussell, 30.1.2008

SEC(2008) 95

SEG(2008) 95

COMMISSION STAFF WORKING DOCUMENT accompanying the

DOKUMENT TA’ ĦIDMA MILL-PERSUNAL TAL-KUMMISSJONI li jakkumpanja

Proposal for a REGULATION OF THE EUROPEAN PARLIAMENT AND OF THE COUNCIL on the provision of food information to consumers SUMMARY OF THE IMPACT ASSESSMENT REPORT ON NUTRITION LABELLING ISSUES

Proposta għal REGOLAMENT TAL-PARLAMENT EWROPEW U TAL-KUNSILL fuq it-twassil ta’ tagħrif dwar l-ikel lill-konsumaturi TAQSIRA TAR-RAPPORT TA’ L-ISTIMA TA’ L-IMPATT DWAR KWISTJONIJIET TA’ ITTIKKETTJAR TA’ NUTRIMENT

{COM(2008) 40 final}{SEC(2008) 92}{SEC(2008) 93}{SEC(2008) 94}

{KUMM(2008) 40 finali}{SEG(2008) 92}{SEG(2008) 93}{SEG(2008) 94}

SUMMARY

SINTEŻI EŻEKUTTIVA

INTRODUCTION

INTRODUZZJONI

The recently published White Paper on a Strategy for Europe on Nutrition, Overweight and Obesity related health issues[1] stressed the need for consumers to have access to clear, consistent and evidence-based information when deciding which foods to buy. Nutrition labelling is an established way for information to be passed to consumers to support health conscious decision making in relation to food purchases. There is wide agreement in Europe today that the effectiveness of nutrition labelling can be strengthened as a channel for information to consumers to support their ability to choose a balanced diet.

Il- White Paper li ġiet ippubblikata dan l-aħħar dwar Strateġija għall-Ewropa fuq kwistjonijiet ta' saħħa marbuta man-Nutriment, il-Ħxuna Żejda u l-Obeżità[1] enfasizzat il-ħtieġa li l-konsumaturi jkollhom aċċess għal tagħrif ċar, konsistenti u msejjes fuq l-evidenza meta jiġu għal deċiżjoni dwar liema ikel jixtru. L-ittikkettjar ta’ nutriment huwa mod stabbilit kif it-tagħrif jgħaddi għand il-konsumatur biex jgħin fit-teħid ta' deċiżjonijiet b’kuxjenza dwar is-saħħa f'dak li għandu x'jaqsam max-xiri ta' l-ikel. Illum hemm qbil wiesa’ fl-Ewropa li l-effettività ta’ l-ittikkettjar ta’ nutriment tista' tissaħħaħ bħala kanal ta' tagħrif lill-konsumaturi biex jgħinhom jagħżlu dieta bilanċjata.

The revision of the Community legislation on general food labelling requirements (Directive 2000/13/EC) and nutrition labelling (Directive 90/496/EEC) have been included in the Commission work programme for simplification.

Ir-reviżjoni tal-leġiżlazzjoni Komunitarja dwar ir-rekwiżiti ta’ l-ittikkettjar ġenerali ta’ l-ikel (Direttiva 2000/13/KE) u l-ittikkettjar ta' nutriment (Direttiva 90/496/KE) ġew inklużi fil-programm ta’ ħidma tal-Kummissjoni għal simplifikazzjoni.

PROCEDURAL ISSUES AND CONSULTATION OF INTERESTED PARTIES

Kwistjonijiet ta’ proċedura u konsultazzjoni tal-partijiet interessati

The main stakeholders were consulted on the revision of Directive 90/496/EEC on nutrition labelling of foodstuffs between 2003 - 2007. There were broad surveys of all interested parties seeking their views on the provisions and application of existing legislation and the needs for change. The respondents were from governmental and NGOs, industry and individuals. Certain consultations were targeted at Member States, industry or consumers. Along with input from various discussions within Commission Committees and Advisory Groups an open consultation was conducted over the internet from 13 March 2006 to 16 June 2006.

Il-partijiet interessati ewlenin ġew ikkonsultati dwar ir-reviżjoni tad-Direttiva 90/496/KE fuq l-ittikkettjar ta' nutriment tal-prodotti ta' l-ikel bejn l-2003 - 2007. Sar stħarriġ wiesa’ tal-partijiet interessati kollha biex tinkiseb l-opinjoni tagħhom fuq id-dispożizzjonijiet u l-applikazzjoni tal-leġiżlazzjoni eżistenti u l-ħtiġijiet għall-bidla. Dawk li wieġbu kienu minn organizzazzjonijiet governattivi u NGOs, mill-industrija u individwi. Ċerti konsultazzjonijiet kienu mmirati lejn l-Istati Membri, l-industrija jew il-konsumaturi. Flimkien mal-kontribut minn diversi diskussjonijiet fi ħdan il-Kumitati tal-Kummissjoni u l-Gruppi Konsultattivi saret konsultazzjoni miftuħa fuq l-internet mit-13.3.2006 sas-16.6.2006.

A Commission Inter-Service Group was formed. The impact assessment was scrutinised by experts from different Commission Directorate-Generals' represented in the Group as well as by the European Commission Impact Assessment Board, which gave its opinion.

Ġie ffurmat Grupp ta’ Interservizz tal-Kummissjoni. L-istima ta’ l-impatt ġiet analizzata bir-reqqa minn esperti minn diversi Direttorati Ġenerali tal-Kummissjoni rrappreżentati fil-Grupp kif ukoll mill-Bord ta' l-Istima ta' l-Impatt tal-Kummissjoni Ewropea, li ta l-opinjoni tiegħu.

PROBLEM IDENTIFICATION

Identifikazzjoni tal-problema

The Impact Assessment concerns the revision of Directive 90/496/EEC which provides the framework for the presentation of nutrition information on food labels. The main purpose of this labelling legislation - to inform consumers, to ensure smooth functioning of the Internal Market and ensure equal conditions of competition – has not been questioned by stakeholders during extensive consultation.

L-Istima ta’ l-Impatt tikkonċerna r-reviżjoni tad-Direttiva 90/496/KE li tipprovdi l-qafas għall-preżentazzjoni ta’ tagħrif dwar nutriment fuq it-tikketti ta’ l-ikel. L-għan ewlieni ta’ din il-leġiżlazzjoni ta’ l-ittikkettjar – li tgħarraf lill-konsumaturi, li tiżgura l-funzjonament bla xkiel tas-Suq Intern u tiżgura l-kundizzjonijiet ugwali tal-kompetizzjoni – ma ġiex ikkontestat mill-partijiet interessati matul konsultazzjoni estensiva.

The feedback is that there is dissatisfaction among stakeholders on the current legislation but there are divergent views on how the legislation could be improved. For example, many consumers find nutrition labels hard to use but the research has not indicated whether the cause of the problem is the amount of information or other factors such as format of the presentation, lack of understanding of terms, placement of the information, type size, etc. Consumers demand more and "better" information on labels and are interested in clear, simple, comprehensive, standardised and authoritative information. Industry considers there are too many labelling requirements which involve implementation of detailed, technical rules. The cost of changes is a concern to industry and the potential impact on international trade has to be borne in mind. Member States wish to balance the needs of consumers and industry, taking into account, any issues that are specific to their country.

Ir-reazzjoni turi li hemm nuqqas ta' sodisfazzjon fost il-partijiet interessati dwar il-leġiżlazzjoni attwali iżda hemm opinjonijiet diverġenti dwar kif il-leġiżlazzjoni tista' titjieb. Per eżempju, bosta konsumaturi jsibuha diffiċli biex jużaw it-tikketti ta’ nutriment iżda r-riċerka ma indikatx jekk il-kawża tal-problema hijiex l-ammont ta’ tagħrif jew fatturi oħrajn bħall-format tal-preżentazzjoni, in-nuqqas ta’ għarfien ta’ termini, il-mod kif jitqiegħed it-tagħrif, id-daqs tat-tipa, eċċ. Il-konsumaturi jitolbu aktar tagħrif u tagħrif "aħjar" fuq it-tikketti u jinteressaw ruħhom f’tagħrif ċar, sempliċi, komprensiv, standardizzat u awtorevoli. L-industrija tqis li hemm wisq rekwiżiti ta’ ittikkettjar li jinvolvu l-implimentazzjoni ta’ regoli dettaljati u tekniċi. L-ispiża tat-tibdil twassal għal tħassib għall-industrija u għandu jitqies l-impatt potenzjali fuq il-kummerċ internazzjonali. L-Istati Membri jixtiequ jibbilanċjaw il-ħtiġijiet tal-konsumaturi u ta’ l-industrija, filwaqt li jqisu, kull kwistjoni li hija speċifika għal pajjiżhom.

What is clear is that labels can be complex and most consumers would like simple, clear, understandable, standardised and authoritative nutrition information. Whilst the industry would support such an aim, they express concerns about the prescriptive nature of the current legislation and the cost implications of any potential changes.

Jidher ċar li t-tikketti jistgħu jkunu kumplessi u l-parti l-kbira tal-konsumaturi jixtiequ tagħrif sempliċi, ċar, li jinftiehem, standardizzat u awtorevoli dwar in-nutriment. Filwaqt li l-industrija tappoġġja għan bħal dan, huma jesprimu tħassib dwar in-natura preskrittiva tal-leġiżlazzjoni attwali u l-implikazzjonijiet ta’ l-ispiża ta’ kull tibdil potenzjali.

During the consultation process four main issues were identified for further examination:

Matul il-proċess ta’ konsultazzjoni ġew identifikati erba’ kwistjonijiet ewlenin biex jiġu eżaminati aktar:

( Disparity in inclusion of nutrition labelling on prepacked foods

( In-nuqqas ta’ qbil dwar l-inklużjoni ta’ ittikkettjar ta’ nutriment fuq ikel ippakkjat minn qabel.

( Consideration of the nutritional elements that should be included in the nutrition labelling

( Jitqiesu l-elementi nutrittivi li għandhom jiġu inklużi fl-ittikkettjar ta’ nutriment.

( Simplified nutrition labelling – in particular the inclusion of nutrient content information on front of pack

( Ittikkettjar ta' nutriment simplifikat - b'mod partikolari l-inklużjoni ta' tagħrif dwar il-kontenut nutrittiv fuq quddiem tal-pakkett.

( Legibility of information.

( Leġġibilità tat-tagħrif.

OBJECTIVES

Għanijiet

The main objectives of the legislation on nutrition labelling are:

L-għanijiet ewlenin tal-leġiżlazzjoni dwar l-ittikkettjar ta’ nutriment huma:

( to make key nutrition information more widely available;

( it-tagħrif prinċipali dwar in-nutriment isir disponibbli b’mod aktar wiesa’;

( to make nutrition labelling more easily understandable to the consumer; and

( l-ittikkettjar ta’ nutriment isir aktar faċli biex jinftiehem mill-konsumatur; kif ukoll

( to create a level playing field for companies to compete.

( il-ħolqien ta' kundizzjonijiet indaqs għall-kumpaniji biex jikkompetu.

Taking this objective into account, the broad scope of the revision should meet the needs of consumers and industry, and reflect the following specific objectives:

Filwaqt li jitqies dan l-għan, l-ambitu wiesa’ tar-reviżjoni għandu jissodisfa l-ħtiġijiet tal-konsumaturi u ta’ l-industrija, u jirrifletti l-għanijiet speċifiċi li ġejjin:

( provision of key nutrition information – which means that the nutritional elements that should be included in the nutrition label need to be reviewed;

( it-twassil ta’ tagħrif prinċipali dwar in-nutriment – li jfisser li l-elementi nutrittivi li għandhom jiġu inklużi fit-tikketta ta’ nutriment jeħtieġ li jiġu riveduti;

( increase the availability of information to the consumer with nutrition information included on nearly all relevant prepacked products;

( tiżdied id-disponibbiltà tat-tagħrif lill-konsumatur bit-tagħrif dwar in-nutriment inkluż kważi fuq il-prodotti kollha ppakkjati minn qabel li huma rilevanti;

( the information to be presented in a way that makes it easy for the consumer to find, understand and use, including its legibility;

( it-tagħrif għandu jkun ippreżentat b’mod li l-konsumatur isibu, jifhmu u jużah faċilment, inkluża l-leġibbiltà tiegħu;

( clarify the legislative situation of nutrient content information provided on the front of pack;

( tiġi ċċarata l-qagħda leġiżlattiva tat-tagħrif dwar il-kontenut nutrittiv ipprovdut fuq quddiem tal-pakkett;

( flexibility, allowing the industry to innovate on nutrition labelling, adapt to different markets and consumer demands, and to take account of the variations in packaging (size, shape, etc.);

( il-flessibbiltà, biex l-industrija tkun tista’ ġġedded l-ittikkettjar ta’ nutriment, tadatta ruħha għat-talbiet differenti tas-swieq u tal-konsumaturi, u tqis il-varjazzjonijiet fl-ippakkjar (id-daqs, il-forma, eċċ.);

( to avoid impediment of the single market, and to meet the expectations of consumers and industry, there should be mechanisms in place to control the extent of any flexibility at the national and EU level.

( Biex jiġi evitat l-impediment tas-suq wieħed, u biex jinlaħqu l-aspettattivi tal-konsumaturi u ta’ l-industrija, għandu jkun hemm mekkaniżmi fis-seħħ biex jikkontrollaw il-firxa ta’ kull flessibbiltà fil-livell nazzjonali kif ukoll ta' l-UE.

MAJOR POLICY ISSUES AND EXPECTED SIMPLIFICATION BENEFITS

Kwistjonijiet importanti ta’ politika u benefiċċji ta’ simplifikazzjoni mistennija

With a view to achieving the objectives and in line with the simplification process a number of measures have been considered for the revision of the Community legislation on all food labelling legislation. With respect to the nutrition labelling legislation the main aspect of simplification is:

Bl-għan li jinkisbu l-għanijiet u b’konformità mal-proċess ta’ simplifikazzjoni ġew meqjusa għadd ta’ miżuri għar-reviżjoni tal-leġiżlazzjoni Komunitarja dwar il-leġiżlazzjoni kollha fuq l-ittikkettjar ta' l-ikel. Fir-rigward tal-leġiżlazzjoni dwar l-ittikkettjar ta’ l-ikel l-aspett prinċipali ta’ simplifikazzjoni huwa:

General simplification tools to bring the legal text into line with other EU policies (including Better Regulation):

L-għodod ta’ simplifikazzjoni ġenerali biex it-test legali jkun konformi ma’ politiki oħra ta’ l-UE (inkluża Regolamentazzjoni Aħjar):

( Setting-up of a flexible bottom-up mechanism (new labelling governance) that would enable the industry to innovate on food labelling, and the labelling rules to adapt to different and continuously changing markets and consumer demands.

( It-twaqqif ta’ mekkaniżmu flessibbli minn isfel għal fuq (kontroll ġdid ta’ l-ittikkettjar) li permezz tiegħu l-industrija tkun tista' ġġedded l-ittikkettjar ta' l-ikel u r-regoli ta' l-ittikkettjar ikunu adattati għat-talbiet tas-swieq u tal-konsumaturi differenti u li dejjem jinbidlu.

( Recasting of the different horizontal provisions on labelling. The merging of the horizontal texts will maximise synergies and increase the clarity, and consistency of Community rules. This is a powerful simplification method that should provide economic operators and enforcement authorities with a clearer and more streamlined regulatory framework.

( It-tfassil mill-ġdid tad-dispożizzjonijiet orizzontali differenti dwar l-ittikkettjar. L-amalgamazzjoni tat-testi orizzontali se jkabbru kemm jista' jkun is-sinerġiji u jżidu ċ-ċarezza, u l-konsistenza tar-regoli Komunitarji. Dan huwa metodu qawwi ta’ simplifikazzjoni li għandu jipprovdi lill-operaturi ekonomiċi u lill-awtoritajiet ta’ l-infurzar b’qafas regolatorju aktar ċar u aktar regolarizzat.

BASIC OPTIONS

Għażliet bażiċi

In the impact assessment report various options for Community action are described to address these issues varying from no further action (the baseline scenario) to statutory actions.

Fir-rapport ta’ l-istima ta’ l-impatt hemm deskritti diversi għażliet għal azzjoni Komunitarja biex jindirizzaw dawn il-kwistjonijiet li jvarjaw minn l-ebda azzjoni ulterjuri (ix-xenarju ta’ bażi) għal azzjonijiet statutarji.

No intervention would maintain the current situation with scattered legislation with the following negative effects:

In-nuqqas ta’ intervent iżomm il-qagħda attwali b’leġiżlazzjoni sparpaljata bl-effetti negattivi li ġejjin:

- piecemeal and confusing rules undermining the effective implementation;

- regoli frammentarji u mħawwdin li jimminaw l-implimentazzjoni effettiva;

- unjustified burdens on food business because of outdated, redundant or unclear requirements;

- piżjiet mhux iġġustifikati fuq in-negozju ta’ l-ikel minħabba rekwiżiti skaduti, żejda jew mhux ċari;

- inconsistent consumer use of labels;

- użu inkonsistenti tat-tikketti mill-konsumatur;

- ineffectiveness of labelling as a communication tool;

- nuqqas ta’ effikaċja ta’ l-ittikkettjar bħala għodda ta’ komunikazzjoni;

- failure of the legislation to adapt to changing markets and consumers' legitimate demands.

- il-leġiżlazzjoni tonqos milli tadatta ruħha għat-talbiet leġittimi tas-swieq u tal-konsumaturi li dejjem qed jinbidlu.

Intervention was considered in the context of deregulation, national legislation, non-statutory approach or updating Community legislation.

L-intervent ġie meqjus fil-kuntest tat-tneħħija ta’ regolamenti, il-leġiżlazzjoni nazzjonali, l-istrateġija mhux statutarja jew l-aġġornament tal-leġiżlazzjoni Komunitarja.

A deregulatory approach would entail the abolition of the basic policy instruments on horizontal food labelling rules with a direct impact on vertical labelling rules. Although food manufacturers would continue to apply the current rules for a short period of time, they would progressively remove information they consider as a burden. Non-harmonised rules would impair the internal market, lead to poor information and reduce the level of consumer protection. Existing rules have proven their merits in allowing free circulation of goods and consumers' protection. Dismantling them would meet resistance from most Member States and consumers given that they have been used to the current requirements and any change could be seen as an abandonment of a valuable "acquis". Therefore, deregulation was not considered a viable approach.

Strateġija ta’ tneħħija ta’ regolamenti tkun tfisser it-tneħħija ta’ l-istrumenti bażiċi ta’ politika dwar ir-regoli orizzontali ta’ l-ittikkettjar ta’ l-ikel b’impatt dirett fuq ir-regoli vertikali ta’ l-ittikkettjar. Minkejja li l-produtturi ta’ l-ikel ikomplu japplikaw ir-regoli attwali għal perjodu qasir ta’ żmien, huma jneħħu progressivament it-tagħrif li jqisu bħala piż. Ir-regoli mhux armonizzati jkunu ta’ xkiel għas-suq intern, iwasslu għal tagħrif ħażin u jnaqqsu l-livell ta’ ħarsien tal-konsumatur. Ir-regoli eżistenti wrew il-merti tagħhom billi ppermettew iċ-ċirkolazzjoni libera tal-merkanzija u l-ħarsien tal-konsumaturi. It-tneħħija tagħhom tintlaqa’ b’reżistenza mill-biċċa l-kbira ta’ l-Istati Membri u tal-konsumaturi billi dawn kienu draw ir-rekwiżiti attwali u kull bidla tista’ tidher bħala abbandun ta’ “acquis” siewi. Għaldaqstant, it-tneħħija tar-regolamenti ma ġietx meqjusa bħala strateġija vijabbli.

National legislation and repeal of the harmonised Community rules would result in different national rules that would impede the internal market; distortion of fair competition; increased administrative burden for industry; inconsistent approach in content and availability of information creating confusion for consumers; different level of protection for EU citizens.

Il-leġiżlazzjoni nazzjonali u r-revoka tar-regoli armonizzati tal-Komunità jirriżultaw f’regoli nazzjonali differenti li jistgħu jxekklu s-suq intern; tfixkil tal-kompetizzjoni ġusta; piż amministrattiv akbar għall-industrija; strateġija inkonsistenti fil-kontenut u fid-disponibbiltà tat-tagħrif li toħloq konfużjoni għall-konsumaturi; livell differenti ta’ ħarsien għaċ-ċittadini ta’ l-UE.

Alternative non-statutory approach (self-regulation, co-regulation, guidance) - The different features of consumer information and current trends towards the development of a "new legislative culture" called for the assessment of an approach that could strike the balance between flexibility and prescription and between action at the national and action at EU level. A multi-level bottom-up governance (local/national/community) based on the principle of commitment to formal, measurable best practice and data sharing between stakeholders could be a viable alternative for certain aspects of the legislation and this innovative mechanism has been assessed as an option.

Strateġija alternattiva mhux statutarja (awtoregolamentazzjoni, koregolamentazzjoni, gwida) – Il-fatturi differenti tat-tagħrif tal-konsumatur u t-tendenzi attwali lejn l-iżvilupp ta' "kultura leġiżlattiva ġdida" sejħu għall-valutazzjoni ta' strateġija li tista' toħloq bilanċ bejn il-flessibbiltà u l-preskrizzjoni u bejn l-azzjoni fil-livell nazzjonali u l-azzjoni fil-livell ta’ l-UE. It-tmexxija b’ħafna livelli, minn isfel għal fuq (livell lokali/nazzjonali/komunitarju), ibbażata fuq il-prinċipju ta' impenn għall-aħjar prassi formali u li tista’ titkejjel u l-qsim ta’ data bejn il-partijiet interessati jistgħu jkunu alternattiva vijabbli għal ċerti aspetti tal-leġiżlazzjoni u dan il-mekkaniżmu innovattiv ġie vvalutat bħala għażla.

POLICY ISSUES AND SPECIFIC OPTIONS

KWISTJONIJIET TA' POLITIKA U GħAżLIET SPEċIFIċI

Although the so called basic alternative approaches were considered, given that the initiative in question concerns a revision of the legislation for which clear areas for action have been identified through the extensive consultation the detailed analysis of impacts has been based on the options for action on the four main issues that were identified for review in the legislation:

Minkejja li ġew meqjusa ’l hekk imsejħa strateġiji alternattivi bażiċi, billi l-inizjattiva kkonċernata tirrigwarda reviżjoni tal-leġiżlazzjoni li għaliha ġew identifikati oqsma ċari għal azzjoni permezz tal-konsultazzjoni estensiva, l-analiżi dettaljata ta’ l-impatti ġiet ibbażata fuq l-għażliet għal azzjoni fuq l-erba’ kwistjonijiet ewlenin li ġew identifikati għal reviżjoni fil-leġiżlazzjoni:

Policy Issue 1: Disparity in inclusion of nutrition labelling on pre-packed foods

Kwistjoni ta’ Politika Nru 1: In-nuqqas ta’ qbil dwar l-inklużjoni ta’ ittikkettjar ta’ nutriment fuq ikel ippakkjat minn qabel

Current problems

Problemi attwali

It is considered that the provision of nutrition information is essential to enable consumers to make informed choices. However, the inclusion of such information is not uniform across product categories nor Member States. Information is less likely on products that have negative attributes such as high fat content.

Huwa meqjus li t-twassil ta’ tagħrif dwar in-nutriment huwa essenzjali biex il-konsumaturi jkunu jistgħu jagħmlu għażliet infurmati. Madankollu, l-inklużjoni ta’ tagħrif bħal dan mhijiex uniformi fost il-kategoriji tal-prodotti u l-Istati Membri. It-tagħrif x’aktarx huwa aktar nieqes fuq prodotti li jkollhom attributi negattivi bħall-kontenut għoli ta’ xaħam.

Policy options

Għażliet ta' politika

The options of no EU action, a voluntary approach, and statutory approach including the mandatory labelling of products were examined.

Ġew eżaminati l-għażliet ta’ nuqqas ta’ azzjoni mill-UE, strateġija volontarja, u strateġija statutarja inkluż l-ittikkettjar obbligatorju tal-prodotti.

Main findings

Sejbiet ewlenin

The do nothing option and a purely voluntary approach would not overcome the identified problem, in particular in relation to provision of information on products with negative attributes.

L-għażla li ma jsir xejn u l-istrateġija purament volontarja mhumiex se jegħlbu l-problema identifikata, b’mod partikolari fir-rigward tat-twassil ta’ tagħrif fuq prodotti b’attributi negattivi.

The introduction of mandatory labelling was examined on the basis of applying to all the industry or with exceptions for SMEs as a whole or only exceptions for microbusinesses. In terms of the potential impact on industry the application of mandatory nutrition labelling across the board would have a major impact if applied immediately. However, with a transition period of 3 years it was estimated that the costs would be reduced significantly to around € 1.2 billion. Whilst for the objective of making information more widely available to the consumer, the option that would lead to the most widespread inclusion of information was the mandatory labelling of all prepacked foods. Exceptions for microbusinesses were expected to lead to around 90% of prepacked food being labelled. It is anticipated that the more widespread availability of nutrition information would lead to changes in consumers' behaviour with potential benefits on public health.

L-introduzzjoni ta’ ittikkettjar obbligatorju ġiet eżaminata fuq il-bażi ta’ applikazzjoni estiża għall-industrija kollha jew b’eċċezzjonijiet għal IŻM b’mod globali jew b’eċċezzjonijiet biss għal mikronegozji. Fit-termini ta’ l-impatt potenzjali fuq l-industrija l-applikazzjoni ta’ ittikkettjar ta’ nutriment obbligatorju fil-kategoriji kollha jkollha impatt kbir jekk tiġi applikata minnufih. Madankollu, b’perjodu tranżitorju ta’ tliet snin ġie stmat li l-ispejjeż jitnaqqsu b’mod sinifikanti għal madwar € 1.2 biljun. Filwaqt li biex jintlaħaq l-għan ta' disponibbiltà akbar ta' tagħrif lill-konsumaturi, l-għażla li twassal għall-aktar inklużjoni mifruxa ta’ tagħrif hija l-ittikkettjar obbligatorju ta’ l-ikel kollu ppakkjat minn qabel. L-eċċezzjonijiet għal mikronegozji mistennija li jwasslu għall-ittikkettjar ta’ madwar 90 % ta’ l-ikel ippakkjat minn qabel. Huwa mistenni li d-disponibbiltà akbar ta' tagħrif dwar in-nutriment twassal għal tibdil fl-imġiba tal-konsumaturi b'benefiċċji potenzjali fuq is-saħħa pubblika.

Policy Issue 2 - How much nutrition information should be included on the label – consideration of the nutritional elements that should be included in the nutrition labelling

Kwistjoni ta’ Politika Nru 2 – Il-kwantità ta’ tagħrif li għandu jiġi inkluż fuq it-tikketta – konsiderazzjoni ta’ l-elementi nutrittivi li għandhom jiġu inklużi fl-ittikkettjar ta' nutriment.

Current problems

Problemi attwali

The aim of nutrition labelling is to inform the consumer and to facilitate their ability to choose a nutritionally balanced diet, therefore the question is what information should be included on a nutrition label to achieve this aim. At the moment nutrition labelling must consist of at least energy, protein, carbohydrates and fats. The WHO Global Strategy on Diet Physical Activity and Health[2] noted that the following nutrients were associated with increased risk of noncommunicable diseases: fats, saturated fats, trans fats, free sugars, and salt (sodium). These broadly coincide with the most frequently mentioned nutritional elements in the 2006 consultation. However, certain stakeholders have called for inclusion of nine nutritional elements in the labelling. Other stakeholders argue that a long list of nutrients is confusing for the consumer. The balance between providing information on the components most relevant to public health and comprehensive information needs to be considered against consumer understanding and risk of information overload.

L-għan ta’ l-ittikkettjar ta’ nutriment huwa li jgħarraf lill-konsumaturi u li jiffaċilita l-kapaċità tagħhom li jagħżlu dieta bbilanċjata b'mod nutrittiv, għalhekk il-mistoqsija hija liema tagħrif għandu jiġi inkluż fuq it-tikketta ta’ nutriment biex jinkiseb dan l-għan. Bħalissa l-ittikkettjar ta’ nutriment għandu għall-inqas jinkludi tagħrif dwar l-enerġija, il-proteini, il-karboidrati u x-xaħmijiet. L-Istrateġija Globali tad-WHO fuq id-Dieta, l-Attività Fiżika u s-Saħħa[2] nnutat li n-nutrijenti li ġejjin kienu assoċjati ma’ riskju akbar ta’ mard li ma jitteħidx: xaħmijiet, saturati, xaħmijiet trans, zokkor liberu u melħ (sodju). Dawn ġeneralment jikkoinċidu ma’ l-aktar elementi nutrittivi msemmija fil-konsultazzjoni ta’ l-2006. Madankollu, ċerti partijiet interessati appellaw għall-inklużjoni ta’ disa’ elementi nutrittivi fl-ittikkettjar. Partijiet oħra interessati jargumentaw li lista twila ta’ nutrijenti tħawwad lill-konsumatur. Il-bilanċ bejn it-twassil ta’ tagħrif dwar il-komponenti l-aktar rilevanti għas-saħħa pubblika u tagħrif komprensiv għandu jitqies fl-isfond tal-fehim tal-konsumatur u r-riskju ta’ eċċess ta’ tagħrif.

Policy options

Għażliet ta' politika

The options of no action, a voluntary approach, and a statutory approach to specify the main elements for nutrition labelling were considered.

Ġew meqjusa l-għażliet ta’ nuqqas ta’ azzjoni, strateġija volontarja, u strateġija statutarja biex ikunu speċifikati l-elementi ewlenin għall-ittikkettjar ta’ nutriment.

Main findings

Sejbiet ewlenin

The do nothing and voluntary approach would mean that the information that is provided would not necessarily coincide with the nutritional elements that are of most interest for the consumer. Any change from the existing requirements would have a potential impact on businesses needing to collect different nutritional composition information for their products. These costs to industry were estimated as being not significant (if the necessary computer software was available to allow rapid calculation of the nutrient content of foods) to € 3.7 billion if the information was collected through chemical analysis of the product. There could be potential benefits to the consumers if the information that was included covered the nutritional components that are most frequently looked for and those that are important in public health terms as being associated with the risk of development of certain non-communicable diseases.

In-nuqqas ta’ azzjoni u l-istrateġija volontarja jkunu jfissru li t-tagħrif li huwa pprovdut ma jkunx jikkoinċidi neċessarjament ma’ l-elementi nutrittivi li jinteressaw l-aktar lill-konsumatur. Kull bidla mir-rekwiżiti eżistenti jkollha impatt potenzjali fuq negozji li jeħtieġ li jiġbru tagħrif differenti dwar il-kompożizzjoni nutrittiva għall-prodotti tagħhom. Ġie stmat li dawn l-ispejjeż għall-industrija mhumiex sinifikanti (jekk is-softwer tal-kompjuter meħtieġ kien disponibbli biex jippermetti l-kalkolu rapidu tal-kontenut nutrittiv ta’ l-ikel) sa € 3.7 biljun jekk it-tagħrif inġabar permezz ta’ analiżi kimika tal-prodott. Jista’ jkun hemm benefiċċji potenzjali għall-konsumaturi jekk it-tagħrif li ġie inkluż kopra l-komponenti nutrittivi li huma l-aktar imfittxija u dawk li huma importanti f’termini ta’ saħħa pubblika għax huma assoċjati mar-riskju ta’ żvilupp ta’ ċertu mard li ma jitteħidx.

Policy Issue 3 - Simplified nutrition labelling – in particular the inclusion of nutrient content information on front of pack

Kwistjoni ta’ Politika Nru 3 - Ittikkettjar ta' nutriment simplifikat - b'mod partikolari l-inklużjoni ta' tagħrif dwar il-kontenut nutrittiv fuq quddiem tal-pakkett

Current problems

Problemi attwali

The inclusion of nutrient content information in simplified form has been increasing in the recent years through the promotion of such schemes by individual Member State Authorities and representative industry organisations. The situation regarding such presentations, particularly those being promoted for use on the front of pack, is not clear under the existing legislation leading to a need for clarification. In addition, the application of different schemes could potentially lead to confusion for the consumer and barriers to trade for the industry.

L-inklużjoni ta’ tagħrif dwar il-kontenut nutrittiv f’forma simplifikata ilha tiżdied f’dawn l-aħħar snin permezz tal-promozzjoni ta’ skemi bħal dawn mill-Awtoritajiet ta’ l-Istati Membri individwali u mill-organizzazzjonijiet rappreżentattivi ta’ l-industrija. Is-sitwazzjoni marbuta ma’ preżentazzjonijiet bħal dawn, b'mod partikolari dawk li qed jiġi promoss l-użu tagħhom fuq quddiem tal-pakkett, mhijiex ċara skond il-leġiżlazzjoni eżistenti u għalhekk jeħtieġ li tiġi ċċarata. Barra minn hekk, l-applikazzjoni ta’ skemi differenti tista' potenzjalment toħloq konfużjoni għall-konsumatur kif ukoll ostakoli fil-kummerċ għall-industrija.

Policy options

Għażliet ta' politika

The options of no action, a voluntary approach, and a statutory approach - to ban such presentation, or to provide a framework for a voluntary approach or to include the information on a mandatory basis were assessed.

Ġew ivvalutati l-għażliet ta’ nuqqas ta’ azzjoni, strateġija volontarja, u strateġija statutarja - biex tiġi pprojbita preżentazzjoni bħal din, jew biex ikun ipprovdut qafas għal strateġija volontarja jew biex it-tagħrif ikun inkluż fuq bażi obbligatorja.

Main findings

Sejbiet ewlenin

From the analysis, the options to do nothing or leave to voluntary approaches would mean continuing proliferation of different schemes. There is a need for clarity of the situation, however, the ban of such labelling would potentially have negative consequences for the industry and consumers. Therefore, the provision of a framework for front of pack labelling would benefit the consumer (reducing the risk of confusion) and benefit the industry (reducing the risk of the creation of barriers to the free movement of goods). The inclusion of the information on a mandatory basis would potentially increase the impact of nutrition labelling on consumer behaviour as evidence suggests that consumers take account of information on the front of pack more often that when provided on the back of pack.

Mill-analiżi, l-għażliet li ma jsir xejn jew l-użu ta’ strateġiji volontarji jkunu jfissru li se tkompli l-proliferazzjoni ta’ skemi differenti. Jeħtieġ li tiġi ċċarata s-sitwazzjoni, madankollu, il-projbizzjoni ta’ ittikkettjar bħal dan ikollha potenzjalment konsegwenzi negattivi għall-industrija u għall-konsumaturi. Għaldaqstant, id-dispożizzjoni ta’ qafas għall-ittikkettjar fuq quddiem tal-pakkett tibbenefika lill-konsumatur (billi tnaqqas ir-riskju ta' konfużjoni) u tibbenfika lill-industrija (billi tnaqqas ir-riskju ta’ ħolqien ta’ ostakoli għall-moviment liberu tal-merkanzija). L-inklużjoni tat-tagħrif fuq bażi obbligatorja żżid potenzjalment l-impatt ta' l-ittikkettjar ta’ nutriment fuq l-imġiba tal-konsumatur billi l-evidenza tagħti x'tifhem li l-konsumaturi jqisu t-tagħrif fuq quddiem tal-pakkett aktar spiss minn meta jkun ipprovdut fuq wara tal-pakkett.

Policy Issue 4 - Legibility of information

Kwistjoni ta’ Politika Nru 4 - Leġġibilità tat-tagħrif

Current problems

Problemi attwali

There is little benefit to the consumer if the nutrition information is hard to read. The question of legibility concerns various aspects of presentation, font size, type style and colour, contrast with background etc. The main cause for complaint is font size particularly for the back of pack information. There is a need for consideration whether the legislation should be adapted to give a framework for the general provision that labels should be legible. This issue is of relevance to all information provided on food labels, not just nutrition information.

Il-benefiċċju għall-konsumatur ikun żgħir jekk it-tagħrif dwar in-nutriment ikun diffiċli biex jinqara. Il-kwistjoni tal-leġġibilità tikkonċerna diversi aspetti tal-preżentazzjoni, id-daqs tal-font, l-istil u l-kulur tat-tipa, il-kuntrast ma’ l-isfond eċċ. Il-kawża ewlenija ta’ l-ilmenti hija d-daqs tal-font b’mod partikolari għat-tagħrif fuq wara tal-pakkett. Hemm bżonn li jitqies jekk il-leġiżlazzjoni għandhiex tiġi adattata biex tagħti qafas għad-dispożizzjoni ġenerali biex it-tikketti jkunu b’mod li jinqraw. Din il-kwistjoni hija ta’ rilevanza għat-tagħrif kollu pprovdut fuq it-tikketti ta' l-ikel, mhux biss għat-tagħrif dwar in-nutriment.

Policy options

Għażliet ta' politika

The options of no action, a voluntary approach, and a statutory approach were assessed.

Ġew ivvalutati l-għażliet ta’ nuqqas ta’ azzjoni, strateġija volontarja, u strateġija statutarja.

Main findings

Sejbiet ewlenin

In the analysis of the options it appeared that doing nothing or leaving to a voluntary approach would not lead to a significant improvement in the situation. The inclusion of a minimum font size for the type on food labelling would help to address the main complaint from consumers.

Fl-analiżi ta’ l-għażliet deher li n-nuqqas ta’ azzjoni jew l-għażla ta’ strateġija volontarja ma twassalx għal titjib sinifikanti fis-sitwazzjoni. L-inklużjoni ta’ daqs minimu tal-font għat-tipa fuq l-ittikkettjar ta’ l-ikel tgħin biex tindirizza l-ilment ewlieni mill-konsumaturi.

Conclusion

Konklużjoni

The preferred option identified is mandatory labelling of nutrition information on energy, fat, saturated fats, sugars and salt in the principal field of vision (front of pack) with the voluntary declaration of other nutrients. The impact on manufacturers can be minimised by providing transition periods that allow for the labelling changes to be made during the normal cycle for label changes that are in operation within a company. In addition, the availability of computer systems to enable the easy calculation of the nutrient composition of a product would significantly reduce any costs associated with obtaining such information.

L-għażla preferuta li ġiet identifikata hi l-ittikkettjar obbligatorju ta’ tagħrif ta' nutriment dwar l-enerġija, ix-xaħam, ix-xaħmijiet saturati, iz-zokkor u l-melħ fil-kamp viżiv prinċipali (fuq quddiem tal-pakkett) flimkien mad-dikjarazzjoni volontarja ta' nutrijenti oħra. L-impatt fuq il-fabbrikanti jista’ jiġi mminimizzat billi jkunu pprovduti perjodi tranżitorji biex it-tibdil fl-ittikkettjar ikun jista' jsir matul iċ-ċiklu normali għal bidliet fit-tikketti li qed jitħaddmu fi ħdan il-kumpanija. Barra minn hekk, id-disponibbiltà ta’ sistemi tal-kompjuter li jippermettu l-kalkolu faċli tal-kompożizzjoni nutrittiva ta’ prodott tnaqqas b’mod sinifikanti kull spiża marbuta mal-kisba ta' tagħrif bħal dan.

[1] European Commission (2007), White Paper on a Strategy for Europe on Nutrition, Overweight and Obesity related health issues - COM(2007) 279.

[1] Il-Kummissjoni Ewropea (2007), White Paper fuq Strateġija għall-Ewropa dwar kwistjonijiet ta' saħħa marbuta man-Nutriment, il-Piż Żejjed u l-Obeżità - KUMM(2007) 279.

[2] World Helath Assembly Resolution 57.17, 2004, Global Strategy on diet, physical activity and health.

[2] Ir-Riżoluzzjoni ta' l-Assemblea Dinjija tas-Saħħa 57.17, 2004, Strateġija Globali fuq id-dieta, l-attività fiżika u s-saħħa.