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Articles 12-18 of Regulation (EC) No 852/2004 — Final provisions

Updated 2026-07-12 · Consolidated text as of 2021-03-24 · Reviewed by: Redazione ce85204 — revisione editoriale assistita da AI (2026-07-12)

Articles 12-18 of Regulation (EC) No 852/2004 contain the final provisions: implementing measures and committee procedure (adapted by Reg. 219/2009 to the regulatory procedure with scrutiny), the derogations and national flexibility of Article 13(3)-(7), the repeal of Directive 93/43/EEC and entry into force, applying no earlier than 1 January 2006.

Article 12Text consolidated as of 2021-03-24 — source EUR-Lex

Transitional measures of general scope designed to amend non-essential elements of this Regulation, inter alia, by supplementing it with new non-essential elements, in particular further specifications of the requirements laid down in this Regulation, shall be adopted in accordance with the regulatory procedure with scrutiny referred to in Article 14(3).

Other implementing or transitional measures may be adopted in accordance with the regulatory procedure referred to in Article 14(2).

Article 13Amendment and adaptation of Annexes I and IIText consolidated as of 2021-03-24 — source EUR-Lex
1

►M2 Annexes I and II may be adapted or updated by the Commission taking into account:◄

  • (a) the need to revise the recommendations set out in Annex I, Part B, paragraph 2;

  • (b) the experience gained from the implementation of HACCP-based systems pursuant to Article 5;

  • (c) technological developments and their practical consequences and consumer expectations with regard to food composition;

  • (d) scientific advice, particularly new risk assessments;

  • (e) microbiological and temperature criteria for foodstuffs.

Those measures, designed to amend non-essential elements of this Regulation, inter alia, by supplementing it, shall be adopted in accordance with the regulatory procedure with scrutiny referred to in Article 14(3).

2

Derogations from Annexes I and II may be granted by the Commission, in particular to facilitate the implementation of Article 5 for small businesses, taking into account the relevant risk factors, provided that such derogations do not affect the achievement of the objectives of this Regulation. Those measures, designed to amend non-essential elements of this Regulation by supplementing it, shall be adopted in accordance with the regulatory procedure with scrutiny referred to in Article 14(3).

3

Member States may, without compromising achievement of the objectives of this Regulation, adopt, in accordance with paragraphs 4 to 7 of this Article, national measures adapting the requirements laid down in Annex II.

4
  • (a) The national measures referred to in paragraph 3 shall have the aim of:

  • (i) enabling the continued use of traditional methods, at any of the stages of production, processing or distribution of food;

or

  • (ii) accommodating the needs of food businesses situated in regions that are subject to special geographical constraints.

  • (b) In other cases, they shall apply only to the construction, layout and equipment of establishments.

5

Any Member State wishing to adopt national measures as referred to in paragraph 3 shall notify the Commission and other Member States. The notification shall:

  • (a) provide a detailed description of the requirements that that Member State considers need to be adapted and the nature of the adaptation sought;

  • (b) describe the foodstuffs and establishments concerned;

  • (c) explain the reasons for the adaptation, including, where relevant, by providing a summary of the hazard analysis carried out and any measures to be taken to ensure that the adaptation will not compromise the objectives of this Regulation;

and

  • (d) give any other relevant information.
6

The other Member States shall have three months from the receipt of a notification referred to in paragraph 5 to send written comments to the Commission. In the case of the adaptations arising from paragraph 4(b), this period shall, at the request of any Member State, be extended to four months. The Commission may, and when it receives written comments from one or more Member States shall, consult Member States within the committee referred to in Article 14(1). The Commission may decide, in accordance with the procedure referred to in Article 14(2), whether the envisaged measures may be implemented, subject, if necessary, to appropriate amendments. Where appropriate, the Commission may propose general measures in accordance with paragraph 1 or 2.

7

A Member State may adopt national measures adapting the requirements of Annex II only:

  • (a) in compliance with a decision adopted in accordance with paragraph 6;

or

  • (b) if, one month after the expiry of the period referred to in paragraph 6, the Commission has not informed Member States that it has received written comments or that it intends to propose the adoption of a decision in accordance with paragraph 6.
Article 14Committee procedureText consolidated as of 2021-03-24 — source EUR-Lex
1

The Commission shall be assisted by the Standing Committee on the Food Chain and Animal Health.

2

Where reference is made to this paragraph, Articles 5 and 7 of Decision 1999/468/EC shall apply, having regard to the provisions of Article 8 thereof.

The period laid down in Article 5(6) of Decision 1999/468/EC shall be set at three months.

3

Where reference is made to this paragraph, Article 5a(1) to (4) and Article 7 of Decision 1999/468/EC shall apply, having regard to the provisions of Article 8 thereof.

Article 15Consultation of the European Food Safety AuthorityText consolidated as of 2021-03-24 — source EUR-Lex

The Commission shall consult the European Food Safety Authority on any matter falling within the scope of this Regulation that could have a significant impact on public health and, in particular, before proposing criteria, requirements or targets in accordance with Article 4(4).

Article 16Report to the European Parliament and the CouncilText consolidated as of 2021-03-24 — source EUR-Lex
1

The Commission shall, not later than 20 May 2009, submit a report to the European Parliament and the Council.

2

The report shall, in particular, review the experience gained from the application of this Regulation and consider whether it would be desirable and practicable to provide for the extension of the requirements of Article 5 to food business operators carrying out primary production and those associated operations listed in Annex I.

3

The Commission shall, if appropriate, accompany the report with relevant proposals.

Article 17RepealText consolidated as of 2021-03-24 — source EUR-Lex
1

Directive 93/43/EEC shall be repealed with effect from the date of application of this Regulation.

2

References to the repealed Directive shall be construed as being made to this Regulation.

3

However, decisions adopted pursuant to Articles 3(3) and 10 of Directive 93/43/EEC shall remain in force pending their replacement by decisions adopted in accordance with this Regulation or Regulation (EC) No 178/2002. Pending the setting of the criteria or requirements referred to in Article 4(3)(a) to (e) of this Regulation, Member States may maintain any national rules establishing such criteria or requirements that they had adopted in accordance with Directive 93/43/EEC.

4

Pending the application of new Community legislation laying down rules for official controls on food, Member States shall take all appropriate measures to ensure the fulfilment of the obligations laid down in or under this Regulation.

Article 18Entry into forceText consolidated as of 2021-03-24 — source EUR-Lex

This Regulation shall enter into force on the 20th day after that of its publication in the Official Journal of the European Union.

It shall apply 18 months after the date on which all of the following acts have entered into force:

a

Regulation (EC) No 853/2004;

b

Regulation (EC) No 854/2004 of the European Parliament and of the Council of 29 April 2004 laying down specific rules for the organisation of official controls on products of animal origin intended for human consumption ();

and

c

Directive 2004/41/EC of the European Parliament and of the Council of 21 April 2004 repealing certain directives concerning food hygiene and health conditions for the production and placing on the market of certain products of animal origin intended for human consumption ().

However, it shall apply no earlier than 1 January 2006.

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

At a glance

Commentary

Rationale and origin

The final provisions of Regulation (EC) No 852/2004 perform three functions: they confer on the Commission the powers to implement and to adapt the technical Annexes (Arts 12-14), they insert the procedural safeguards (consultation of EFSA and reporting to the legislature, Arts 15-16), and they govern the transition from the previous regime (repeal and entry into force, Arts 17-18). The block reflects the architecture of the Regulation as a "living" act whose technical Annexes can be updated without reopening the full legislative procedure.

One historical fact conditions the reading of the consolidated text. Article 12 and Article 13(1) and (2) were amended by Regulation (EC) No 219/2009, which aligned a series of acts with Decision 1999/468/EC by introducing, for measures designed to amend non-essential elements, the regulatory procedure with scrutiny Article 1 of Regulation (EC) No 219/2009. In the consolidated text this shows in the reference to Article 14(3) and in the ►M2 consolidation marker at the start of Article 13(1) Article 13(1) of Regulation (EC) No 852/2004. In our view this point is often overlooked by commentators who cite the original version: today's procedural basis is the post-219/2009 one.

Article 12 — Implementing and transitional measures

Article 12 draws two tracks. Transitional measures of general scope designed to amend non-essential elements of the Regulation, including by supplementing it, are adopted under the regulatory procedure with scrutiny of Article 14(3); other implementing or transitional measures follow the regulatory procedure of Article 14(2) Article 12 of Regulation (EC) No 852/2004. It is on this basis that the Commission has adopted, over time, detailed measures and technical adaptations.

Article 13 — Amendment, adaptation and flexibility

Article 13 is the densest. Paragraph 1 empowers the Commission to adapt or update Annexes I and II, taking into account, among other things, the revision of the recommendations in Annex I Part B, the experience gained from applying HACCP, technological developments, scientific advice and microbiological and temperature criteria Article 13(1) of Regulation (EC) No 852/2004. This is the legal basis for updates to the Annexes: Regulation (EU) 2021/382 rests on it Article 1 of Regulation (EU) 2021/382, having inserted food redistribution, food safety culture and allergen awareness.

Paragraph 2 allows the Commission to grant derogations from Annexes I and II, in particular to facilitate the implementation of Article 5 for small businesses, taking into account the relevant risk factors and provided the derogations do not affect the objectives of the Regulation Article 13(2) of Regulation (EC) No 852/2004. This is the EU-level flexibility valve, distinct from the national flexibility of the following paragraphs.

Paragraphs 3 to 7 set out national flexibility, which is the most significant profile in practice. Paragraph 3 allows Member States, without compromising the objectives of the Regulation, to adopt national measures adapting the requirements of Annex II Article 13(3) of Regulation (EC) No 852/2004. Paragraph 4 sets the permitted aims: enabling the continued use of traditional methods at any stage of production, processing or distribution, or accommodating the needs of food businesses in regions subject to special geographical constraints; in all other cases the adaptation concerns only the construction, layout and equipment of establishments Article 13(4) of Regulation (EC) No 852/2004. Paragraph 5 requires notification to the Commission and the other Member States, with a description of the requirements to be adapted, of the foodstuffs and establishments concerned, and of the reasons, including a summary of the hazard analysis Article 13(5) of Regulation (EC) No 852/2004. Paragraph 6 opens a three-month comment window (extended to four for adaptations of construction, layout and equipment) and a possible passage through the committee Article 13(6) of Regulation (EC) No 852/2004. Paragraph 7 makes the adoption of the national measure conditional on a favourable decision under paragraph 6 or, absent any reaction by the Commission, on the expiry of the period Article 13(7) of Regulation (EC) No 852/2004. This mechanism has enabled, for example, the protection of traditional products; the picture for individual States is in the country pages.

Article 14 — Committee procedure

Article 14 identifies the committee assisting the Commission — the Standing Committee on the Food Chain and Animal Health — and distinguishes the regulatory procedure (paragraph 2) from the regulatory procedure with scrutiny (paragraph 3, which refers to Article 5a of Decision 1999/468/EC) Article 14(1) of Regulation (EC) No 852/2004 Article 14(3) of Regulation (EC) No 852/2004. This distinction, introduced in its present form by the adaptation in Regulation 219/2009 Article 1 of Regulation (EC) No 219/2009, explains why Articles 12 and 13 now refer to paragraph 3.

Article 15 — Consultation of EFSA

The Commission consults the European Food Safety Authority on any matter within the scope of the Regulation that could have a significant impact on public health, in particular before proposing criteria, requirements or targets under Article 4(4) Article 15 of Regulation (EC) No 852/2004 Article 4(4) of Regulation (EC) No 852/2004. It links the technical adaptation power to the scientific assessment of risk.

Article 16 — Report

By 20 May 2009 the Commission was to submit a report to the Parliament and the Council, in particular to consider whether it would be desirable and practicable to extend the requirements of Article 5 (HACCP) to operators in primary production and the associated operations of Annex I Article 16(2) of Regulation (EC) No 852/2004. The exclusion of primary production from HACCP remains in place to date Article 5(3) of Regulation (EC) No 852/2004.

Article 17 — Repeal

Article 17 repeals Directive 93/43/EEC on the hygiene of foodstuffs from the date of application of the Regulation and provides that references to the repealed Directive are construed as references to the Regulation Article 17(1) of Regulation (EC) No 852/2004 Article 17(2) of Regulation (EC) No 852/2004. The shift from a directive (an act to be transposed) to a regulation (a directly applicable act) is the hallmark of the Hygiene Package: uniformity of text throughout the Union. Paragraph 3 keeps certain decisions and national rules in force transitionally until their replacement Article 17(3) of Regulation (EC) No 852/2004, while paragraph 4 required Member States, pending new rules on official controls, to ensure the fulfilment of the obligations Article 17(4) of Regulation (EC) No 852/2004: those rules are now Regulation (EU) 2017/625 Article 1 of Regulation (EU) 2017/625.

Article 18 — Entry into force

The Regulation enters into force on the 20th day after publication in the Official Journal and applies 18 months after the entry into force of Regulation (EC) No 853/2004, Regulation (EC) No 854/2004 and Directive 2004/41/EC, and in any event no earlier than 1 January 2006 Article 18 of Regulation (EC) No 852/2004 Article 1 of Regulation (EC) No 853/2004. This is the date of application of the whole Hygiene Package. Regulation (EC) No 854/2004, referred to as a triggering act, was subsequently repealed by Regulation (EU) 2017/625: it should therefore be mentioned only historically, not as a rule in force.

Penalties

The final provisions carry no penalties. As for the rest of the Regulation, the choice of penalties rests with the Member States, which make them effective, proportionate and dissuasive Article 17(2) of Regulation (EC) No 178/2002; the operational picture per State is in the country pages.

Case law

As at the update date of this page, there is no Court of Justice of the European Union case-law specifically devoted to Articles 12-18 of Regulation (EC) No 852/2004. The national flexibility of Article 13 Article 13(3) of Regulation (EC) No 852/2004 has not given rise to significant litigation before the Union courts: its operation has been expressed mainly through Member State notifications.

Implementation in the Member States

Articles 12-18 are directly applicable. The power to adapt the Annexes (Article 13(1)) was last exercised by Regulation (EU) 2021/382 Article 1 of Regulation (EU) 2021/382. The national flexibility of Article 13(3)-(7) is implemented by the Member States through measures notified to the Commission Article 13(5) of Regulation (EC) No 852/2004: adaptations for traditional products are the best-known example. The national picture, including penalties, is in the country pages.

Common errors

Frequently asked questions

What do Articles 12-18 of Regulation 852/2004 govern?

They are the final provisions: implementing measures (Art. 12), amendment and adaptation of the Annexes with national flexibility (Art. 13), committee (Art. 14), consultation of EFSA (Art. 15), report to the legislature (Art. 16), repeal of Directive 93/43/EEC (Art. 17) and entry into force (Art. 18) Article 17(1) of Regulation (EC) No 852/2004 Article 18 of Regulation (EC) No 852/2004.

What did Regulation 219/2009 change in Articles 12 and 13?

It aligned the procedural references with Decision 1999/468/EC, introducing for measures amending non-essential elements the regulatory procedure with scrutiny (reference to Article 14(3)) Article 1 of Regulation (EC) No 219/2009 Article 13(1) of Regulation (EC) No 852/2004. In the consolidated text this is flagged by the ►M2 marker.

What is the national flexibility of Article 13?

It is the power of Member States to adopt national measures adapting the requirements of Annex II Article 13(3) of Regulation (EC) No 852/2004, to allow traditional methods or accommodate geographical constraints, or — in other cases — limited to the construction, layout and equipment of establishments Article 13(4) of Regulation (EC) No 852/2004. It requires a reasoned notification to the Commission Article 13(5) of Regulation (EC) No 852/2004.

Can the Commission grant derogations for small businesses?

Yes. Article 13(2) allows derogations from Annexes I and II to facilitate the implementation of HACCP for small businesses, taking into account the risk factors and without compromising the objectives of the Regulation Article 13(2) of Regulation (EC) No 852/2004.

From when does Regulation 852/2004 apply?

It enters into force on the 20th day after publication and applies no earlier than 1 January 2006, the date of application of the whole Hygiene Package Article 18 of Regulation (EC) No 852/2004.

Is Regulation 854/2004, cited in Article 18, still in force?

No. It is referred to only as a triggering act for determining the date of application Article 18 of Regulation (EC) No 852/2004; it was subsequently repealed by Regulation (EU) 2017/625 Article 1 of Regulation (EU) 2017/625, which now governs official controls.

Was HACCP extended to primary production after the Article 16 report?

No. The 2009 report was to consider its desirability and practicability Article 16(2) of Regulation (EC) No 852/2004, but the exclusion of primary production from the Article 5 obligation remains in place Article 5(3) of Regulation (EC) No 852/2004.

Sources

Drafting and review

ce85204 editorial team. Draft generated with AI from primary sources; editorial review AI-assisted (see methodology).