E Agenda Item 3 CX/FL 17/44/3 Add 1 September 2017 1. Intrductin JOINT FAO/WHO FOOD STANDARDS PROGRAMME CODEX COMMITTEE ON FOOD LABELLING 44 th Sessin Asunción, Paraguay, 16 20 Octber 2017 DISCUSSION PAPER ON ALCOHOLIC BEVERAGE LABELLING Prepared by WHO The 19th Sessin f the FAO/WHO Crdinating Cmmittee fr Asia had cnsidered a prpsal t develp a reginal standard fr Makgelli, a fermented beverage cntaining a small amunt f alchl, and agreed that a revised discussin paper n the develpment f this reginal standard with mre infrmatin and data wuld be a gd basis fr the Cmmittee t start cnsideratin n new wrk n this cmmdity (REP15/ASIA paras 104-111). If the Cmmissin decides t develp this standard, it wuld create a precedent that can prmpt similar prpsals fr develping standards fr ther types f alchlic beverages. Withut prejudice t develping a standard fr any particular alchlic beverage, a mre glbal and cmprehensive apprach culd be pursued by Cdex in fulfilment f its bjectives t prtect cnsumers health including thrugh prvisin f infrmatin t cnsumers. In this regard, the base wrk already exists in the frm f the Cdex General Standard fr the Labelling f Prepackaged Fds and related texts n labelling and claims. WHO has identified several pssible areas that can be addressed by Cdex such as definitin f alchl beverage and labelling infrmatin including alchl cntent, ingredients, calries and assciated health risks. WHO presented these examples at CCEXEC73 in June 2017 (REP17/EXEC2) and CAC40 in July 2017 (REP17/CAC) t discuss this further. One f the bjectives f Cdex is the prtectin f cnsumers health. Labelling f alchlic beverages prvides a unique pprtunity nt nly t infrm cnsumers abut different ingredients in a beverage, its alchl cntent and energy value, but als t infrm cnsumers abut the health risks assciated with the prducts they are cnsidering t cnsume. Alchl beverage labelling can prvide a rare pprtunity t effectively disseminate health prmtin messages and infrmatin abut the risks assciated with cnsuming alchlic beverages at the pints f sale and cnsumptin, and, therefre, culd be cnsidered as part f a cmprehensive strategy t reduce the harmful use f alchl and thereby help prtecting cnsumers health. Prtectin f ppulatins at high risk f alchl-attributable harm culd be seen as an integral part f any Cdex standard setting wrk n fds in internatinal trade including beverages. Thus WHO presents this discussin paper and draft prject dcument t stimulate discussin in the Cmmittee n Fd Labelling (CCFL). 2. Ratinale fr prpsed new wrk in Cdex Alchl cnsumptin is deeply embedded in many scieties, and alchlic beverages are prduced, distributed and cnsumed in mst parts f the wrld. Wrldwide clse t 2 billin peple aged 15+ years cnsumed alchl during the past 12 mnths. Alchlic beverages cntain ethanl, which is a psychactive and txic substance with dependence prducing prpensity. Ethanl, when cnsumed in alchlic beverages, has the ptential t cause a range f disrders and health cnditins assciated with significant health and scial burden. Alchl impacts peple and scieties in many ways, and the harm caused by alchl is determined by the vlume f the alchl cnsumed, the pattern f drinking and, n sme ccasins, the quality f alchl cnsumed. Wrldwide, it is estimated that 3.3 millin deaths every year result frm harmful use f alchl, this represent 5.9 % f all deaths. Overall 5.1 % f the glbal burden f disease and injury is attributable t alchl, as measured in disability- adjusted life years (DALYs).
CX/FL 17/44/3 Add 1 2 Prviding cnsumer infrmatin and labelling f alchlic beverages t indicate the harm related t alchl is ne f the plicy ptins prpsed t Member States by the WHO Glbal Strategy t reduce the harmful use f alchl, which was endrsed by the Wrld Health Assembly (WHA) in 2010 (reslutin WHA63.13). Furthermre, the Glbal Actin Plan fr the preventin and cntrl f nncmmunicable diseases (NCDs) 2013-2020 endrsed by WHA in 2013 (reslutin WHA66.10) highlights harmful use f alchl as ne f the fur key risk factrs fr nncmmunicable diseases and calls fr at least 10% relative reductin in the harmful use f alchl, as apprpriate, within the natinal cntext. Reducing harmful use f alchl is als in integral part f the health gal in the UN 2030 Agenda fr Sustainable Develpment. The inclusin f target 3.4; strengthen the preventin and treatment f substance abuse, including harmful use f alchl, further illustrates and acknwledges the imprtant rle f reducing the harmful use f alchl glbally. The 2013 WHO Glbal Actin Plan fr the preventin and cntrl f NCDs cntains a menu f plicy ptins and cst-effective interventins t assist Member States in implement actins fr preventin and cntrl f majr NCDs including n harmful use f alchl. An updated list f the mst effective and cmplementary plicy ptins fr preventin and cntrl f NCDs (cntained in Appendix 3 t the 2013 Glbal Actin Plan fr the preventin and cntrl f NCDs) was recently endrsed by the Seventieth Wrld Health Assembly in May 2017 thrugh reslutin WHA70.11. T prvide cnsumer infrmatin abut, and label alchlic beverages t indicate, the harm related t alchl was included in the list f recmmended strategies and interventins fr Member States t use in the updated appendix. At the reginal level, the WHO Eurpean Actin Plan t reduce the harmful use f alchl 2010-2020, agreed upn by the WHO Reginal Cmmittee fr Eurpe in 2011 thrugh reslutin EUR/RC61/R4, states that Prduct labelling similar t that used fr fdstuffs, including alchl and calrie cntent, additives, allergens etc, can be intrduced where pssible. Health warning labels shuld be placed n all alchlic beverage cntainers as part f brader cmmunicatin and pint-f-purchase health campaigns t reduce the harmful use f alchl. Once phased in, alchl warning r infrmatin labels cst very little and, at the very least, remind cnsumers and sciety at large that alchl is n rdinary cmmdity. In line with the prvisin f infrmatin n rdinary fdstuffs, alchlic beverage labels shuld state the alchl cntent in an easily understd manner and state the Member State s guidelines fr men and wmen. The ingredients relevant t health, including the calrie cntent, shuld be listed and in general labelling shuld be intrduced like that used fr ther fdstuffs, in rder t ensure that cnsumers have access t cmplete infrmatin n the cntent and cmpsitin f the prduct fr the prtectin f their health and interests. WHO Eurpean Actin plan t reduce the harmful se f alchl 2010-2020 Cdex has develped standards fr fd additives (CODEX STAN 192-1995) and Cde f Practice fr the Preventin and Reductin f Ochratxin A Cntaminatin in Wine (CAC/RCP 63-2007). Cdex has als set the General Standard fr the Labeling f Pre-packaged Fds (CODEX STAN 1-1985), General Guidelines n Claims (CAC/GL 1-1979) as well as Guidelines fr Use f Nutritin and Health Claims (CAC/GL 23-1997) which als apply t alchlic beverages. Cdex has never set a cmmdity standard fr an alchlic beverage. Withut prejudice t a new wrk prpsal t develp a reginal standard fr Makgelli, that, if apprved, develped and adpted, culd set a precedence fr future Cdex standards fr alchlic beverages, generic labelling prvisins applicable t alchlic beverages can be develped s that future Cdex cmmdity standard can refer t such prvisins in their labelling sectins. Cmparable appraches have already been taken in the Standard fr Infant Frmula and Frmulas fr Special Medical Purpses Intended fr Infants (CODEX STAN 72-1981) marketing prvisins and in the Standard fr Natural Mineral Waters (CODEX STAN 108-1981) warning n high fluride cntent prducts. In the Eurpean Unin, fr instance, it is mandatry t label the actual alchlic strength by vlume fr beverages cntaining mre than 1,2% by vlume f alchl. Alchlic beverages are als prhibited t bear health claims and the nly permitted nutritin claims are the nes referring t lw alchl levels and reductin f alchl r energy cntent. When such nutritin claims are made, the nutritin declaratin is required. The EU Regulatin n the prvisin f fd infrmatin t cnsumers which became applicable in December 2014 includes rules n listing ingredients and prviding a nutritin declaratin. These rules are mandatry fr all fds, including alchlic beverages. There is an exemptin, hwever, fr beverages cntaining mre than 1.2% alchl per vlume. Similar regulatins are emerging in ther regins and cuntries, and it may be timely fr Cdex t take a lead in develping a cmmn set f principles internatinally, t avid diversificatin f regulatins.
CX/FL 17/44/3 Add 1 3 Harmful use f alchl is a leading risk factr fr mrtality and mrbidity glbally and there has been a cnsiderable develpment f glbal and reginal strategies, actins plans and brader framewrks with the aim t reduce this burden. Labelling f alchlic beverages is an integral part f many f these instruments, but a mre cncerted and cmprehensive apprach is needed t better understand and guide future develpments when it cmes t labelling f alchlic beverages and the ways in which this can cntribute t prtecting public health and the individual cnsumer. 3. Scpe f prpsed wrk Cnsumers and ptential cnsumers shuld be able t make infrmed chices abut the prducts they may purchase and cnsume, and cuntries have an bligatin t ensure that individuals are able t d s. In additin, there is als a grwing acceptance f the key rle that Member States play in psitively influencing cnsumers dietary chices. A range f preventative health appraches, including fd labels where apprpriate, are available in this regard. Alchl beverages labelling regulatin culd be an imprtant instrument fr cuntries t reduce harmful use f alchl and prmting healthier habits, and Cdex is in an ideally psitined t guide the cuntries further in this regard. There are several issues related t labelling f alchlic beverages, which are listed belw. Sme f these issues clearly relate t the wrk f CCFL, while ther issues, thugh related, may fall utside f the mandate f CCFL (indicated by *). Definitin f alchlic beverages (i.e. minimal alchl cntent) Standard(s) fr alchlic beverages(*) Definitin f a standard drink (*) Prduct infrmatin: Ingredients Alchlic strength Number f standard drinks Calries Allergens Health warnings Carcingenicity Intxicating effects Dependence ptential Children and adlescents Pregnancy Restrictins n nutritin labelling and claims Restrictins n the misleading, deceptive and marketing infrmatin and packaging presenting risks t health CCFL may chse t tackle all r part f these issues as new wrk, with the exceptin f thse which clearly d nt fall under its mandate. 4. Recmmendatins Thus CCFL is invited t discuss pssible new wrk n alchl beverage labelling with bjectives t infrm cnsumers abut the prducts they cnsume r plan t cnsume and prtect their health, and with an ultimate gal t benefit public health wrldwide. The attached draft prject dcument (Annex 1) is meant t facilitate discussin and analysis f the issues and shuld be mdified as necessary and apprpriate by Member States wishing t bring this wrk frward and/r by CCFL itself befre eventual submissin t CCEXEC and CAC.
CX/FL 17/44/3 Add 1 4 DRAFT PROJECT DOCUMENT FOR NEW WORK ON ALCOHOL BEVERAGE LABELLING ANNEX 1 Prpsed amendments t General Standard n Labelling f Prepackaged Fds (CODEX STAN 1) and Guidelines fr Use f Nutritin and Health Claims (CAC/GL 23) 1. PURPOSE AND SCOPE OF THE NEW WORK The scpe f this new wrk is t cnsider the rle fr Cdex in prviding guidance n labelling f alchlic beverages t gvernments with the aim f public health prtectin, especially prtecting health f ppulatins at high risk f alchl-attributable harm. In additin, cnsumers f alchlic beverages shuld be infrmed abut the health risks assciated with the prducts they cnsume r plan t cnsume, the different ingredients in the beverage, allergens, its alchlic strength and cntent and energy value. New prvisins can be primarily develped as an additinal sectin in the General Standard n Labelling f Prepackaged Fds (CODEX STAN 1-1985), t fllw immediately the existing sectin n the labelling f irradiated fd (sectin 5.2). Other frms (e.g. a separate Cdex guideline) culd be cnsidered depending n the structure and vlume f new prvisins and the ease f reading f the existing and new Cdex standards and guidelines. Cnsequential and related amendments may need t be prpsed t the Guidelines fr Use f Nutritin and Health Claims (CAC/GL 23-1997) and ther relevant texts. 2. RELEVANCE AND TIMELINESS Alchl is a psychactive, txic and dependence prducing substance with cnsiderable negative effect n the glbal health burden. Alchlic beverages are exempted frm internatinal cnventins that gvern all ther psychactive substances with cnsiderable implicatins fr public health. Alchl is als are exempted frm key fd legislatins that requires labelling f ingredients and nutritinal infrmatin. Fr cnsumers, the alchl label is the principal surce f infrmatin at the pint f sale. Adding alchl cntent, nutritinal infrmatin and health warning labels t alchl cntainers is an imprtant first step in raising awareness and establish a widespread scial understanding f the harm due t use f alchl. Apprpriate alchl beverage labelling culd be cnsidered as a cmpnent f a cmprehensive public health strategy t reduce alchlrelated harm. Cdex culd be ne ptential platfrm fr further wrk in this area 3. MAIN ASPECTS TO BE COVERED The main aspects t be cvered in the prpsed new wrk culd include: a. Prpsed amendments t General Standard n Labelling f Prepackaged Fds (CODEX STAN 1) Definitin f alchlic beverages (i.e. minimal alchl cntent) Prduct infrmatin Health warnings Restrictins n infrmatin and packaging presenting risks t health (ther than nutritin labelling and health claims) b. Prpsed amendments t the Guidelines fr Use f Nutritin and Health Claims (CAC/GL 23) Restrictins n nutritin labelling and health claims c. New Cdex Guideline Restrictins n infrmatin and packaging presenting risks t health (ther than nutritin labelling and health claims) 4. ASSESSMENT AGAINST THE CRITERIA FOR THE ESTABLISHMENT OF NEW WORK PRIORITIES General criterin Labelling f alchlic beverages will imprve prtectin f cnsumer by better infrming them abut ptential health risks invlved with the prducts they are planning t purchase and cnsume. A cmmn set f standards culd als remve barriers t trade. Criteria applicable t general subjects (a) Diversificatin f natinal legislatins and apparent resultant r ptential impediments t internatinal trade.
CX/FL 17/44/3 Add 1 5 Regulatins n labelling f alchlic beverages are emerging in many cuntries. In rder t avid diversificatin f regulatins, it will be timely fr Cdex t take a lead in agreeing n the cmmn set f principles internatinally. Different appraches being adpted acrss cuntries wuld frce exprters t meet multiple sets f labelling prvisins based n the requirements f the imprting partners. Diversificatin f regulatins wuld als mean that the public health wuld nt be equally prtected acrss natinal brders. (b) Scpe f wrk and establishment f pririties between the varius sectins f the wrk. All the aspects f the wrk, as detailed in the Sectin 3 abve, can be undertaken simultaneusly t prduce a cherent set f standards fr the Labelling f alchlic beverages. (c) Wrk already undertaken by ther internatinal rganizatins in this field and/r suggested by the relevant internatinal intergvernmental bdy(ies). Prviding cnsumer infrmatin and labelling f alchlic beverages t indicate the risks related t alchl is ne f the plicy ptins WHO is recmmending t their Member States. Cdex is the relevant intergvernmental bdy respnsible fr develping internatinal standards in this area and we are nt aware f any ther internatinal rganizatin wrking in this area at the glbal level. The EU Regulatin n the prvisin f fd infrmatin t cnsumers includes rules n listing ingredients and prviding a nutritin declaratin. These rules are mandatry fr all fds, including alchlic beverages. There is an exemptin, hwever, fr beverages cntaining mre than 1.2% alchl per vlume and currently the EU encurages the alchlic beverage industry t cme up with a set f vluntary restrictins. The Eurpean Cmmissin has invited the industry t respnd t cnsumers' expectatins and present by March 2018 a self-regulatry prpsal that wuld cver the entire sectr f alchlic beverages. It is therefre timely fr Cdex t start new wrk. (d) Amenability f the subject f the prpsal t standardizatin. Mst member cuntries, and mre specifically the develping cuntries, base their labelling requirements n relevant Cdex standards. The purpse f the new wrk is t develp clear and unambiguus labelling requirements fr alchlic beverages. The labelling requirements f alchlic beverages can be effectively standardized with the invlvement f and inputs frm the Cdex members. (e) Cnsideratin f the glbal magnitude f the prblem r issue. Harmful use f alchl represents ne f the mst imprtant risk factrs fr the glbal burden f disease and injuries. Alchl cnsumptin is a causal factr in ver 200 health cnditins, including mental and behaviral disrders, majr nncmmunicable diseases (NCD), rad traffic crashes, vilence and suicides. The harmful use f alchl has als a significant impact n the develpment and treatment utcmes f sme majr infectius diseases such as tuberculsis and HIV/AIDS. We are als starting t get a much better understanding f the impact that harmful use f alchl can have n ther peple than the drinker, and smetimes this impact is devastating. 5. RELEVANCE TO CODEX STRATEGIC OBJECTIVES One f the primary strategic bjectives f the Cdex Alimentarius Cmmissin is t prtect the health f cnsumers and t prmte the crdinatin f all fd standards wrk undertaken by internatinal gvernmental and nn-gvernmental rganizatins. Alchl beverages are included in the scpe f prducts under cnsideratin by Cdex. At the same time alchl use is assciated with well-dcumented risks t health, and cnsumers f alchl beverages have the right t be infrmed abut different ingredients in a beverage, its alchl cntent and energy value, but als abut the health risks assciated with cnsumptin f alchl beverages. Hence, the internatinal wrk n alchl beverage labelling can be legitimately cnsidered as f direct relevance t Cdex strategic bjectives. 6. RELATION BETWEEN THE PROPOSAL AND OTHER EXISTING CODEX DOCUMENTS Cdex has develped standards fr additives (CODEX STAN 192-1995) and a cde f practice t reduce cntaminants in wine (CAC/RCP 63-2007). Cdex has als set labelling prvisins fr all pre-packaged fds (CODEX STAN 1-1985), guidelines n claims (CAC/GL 1-1979) and guidelines n nutritin labelling (CAC/GL 2-1985), as well as guidance n nutritin and health claims (CAC/GL 23-1997). Cdex has never set a cmmdity standard fr an alchlic beverage and a new wrk prpsal fr Makgelli wuld set a precedence fr future Cdex standards fr alchlic beverages. 7. REQUIREMENT FOR AND AVAILABILITY OF EXPERT SCIENTIFIC ADVICE Nne identified at this stage. There will be pprtunity t cnsult with relevant bdies if necessary thrughut the prcess. In parallel, CCFL may wish t request a survey f existing natinal legislatin and regulatins in the area f alchlic beverage labelling as relevant t the new wrk.
CX/FL 17/44/3 Add 1 6 8. NEED FOR TECHNICAL INPUT TO THE STANDARD FROM EXTERNAL BODIES Nne identified at this stage. 9. PROPOSED TIMELINE: Octber 2017 Agreement n new wrk by CCFL June 2018 Critical review f prject dcument by CCEXEC July 2018 Apprval f new wrk by CAC July 2018 Establishment f electrnic wrking grup perating under CCFL t develp prpsed draft amendments t CODEX STAN 1 and ther related texts (e.g. CAC/GL 23) at Step 2 January 2019 Circulatin f the prpsed draft amendments fr cmments at Step 3 April/May 2019 Cnsideratin f the prpsed draft amendments by CCFL at Step 4 July 2019 Cnsideratin by CAC at Step 5 Octber 2020 Cnsideratin f the draft amendments by CCFL at Step 7 July 2021 Final adptin by CAC at Step 8