Why clear alcohol labelling matters

Data source: WHO, Alcohol, health and policy response in the EU, 2024. Graphic: Samy Chahri, EPRS.

In the European Union (EU) 656 people die every day from alcohol-related causes (see Figure 1). The latest World Health Organization (WHO) statistics on alcohol consumption show that, worldwide, 2.6 million deaths were attributable to alcohol consumption in 2019, of which 2 million were among men and 0.6 million among women. The highest levels of alcohol-related deaths per 100 000 persons are observed in the WHO European region – comprising 53 countries across Europe and Central Asia – with nearly 53 deaths per 100 000 people.

In February 2025, the WHO reiterated that clearly visible, compulsory, standardised health warning labels on alcoholic beverages are essential for making consumers aware that drinking alcohol can lead to cancer. Clear labels can also help tackle irresponsible drinking behaviour and excessive energy intake from alcohol, making them a major policy measure in the strategy to curb unhealthy dietary patterns and obesity.

WHO statistics from 2019 show that 56 % of the global adult population (aged 15 and over) does not consume alcohol. In the EU, the situation is quite the opposite: 77 % of the population – 69 % of women and 84 % of men – consume alcohol.

The EU is home to the heaviest drinkers in the world, with seven of the top 10 countries in terms of per-capita alcohol consumption located in the EU. Moreover, heavy episodic drinking (defined as consuming six or more standard drinks of alcohol,¹ or 60 g of pure alcohol, on a single occasion) is common in the EU, with about 30 % of adults engaging in this drinking pattern, compared to a global average of 18 % (see Figure 2).

Data source: WHO, Alcohol, health and policy response in the EU. Graphic: Samy Chahri, EPRS.

In 2019, the average yearly total per-capita consumption among adults in the EU was 11 litres of pure alcohol, roughly double the global average of 5.5 litres (see Figure 3). Men consumed 3.6 times more alcohol (17.4 litres) than women (4.9 litres). In the same year, there were some 290 million drinkers in the EU, with an average of nearly four out of every five adults consuming alcohol (77 %), compared to 56 % globally.

Data source: WHO, Alcohol, health and policy response in the EU. Graphic: Samy Chahri, EPRS.

Drinking was more common among men (84 %) than women (69 %). Among current drinkers only, excluding lifetime abstainers and former drinkers, the average consumption per adult was 14 litres of pure alcohol, with men consuming 20 litres and women 7 litres.

In 2019, alcohol was responsible for almost one in every four injury deaths (23 %), as well as homicides and suicides (25 %). Alcohol was also the main cause of two in every five road deaths (40 %), see Figure 3.

Since 2010, the EU has seen a minimal reduction in per capita alcohol consumption, decreasing by less than 1 % from 11.1 to 11.0 litres of pure alcohol. This falls significantly short of the 10 % reduction target outlined in the WHO European Framework for Action on Alcohol 2022-2025 .

Despite the minimal overall decline, six EU countries – Latvia, Bulgaria, Poland, Spain, Malta and Italy – experienced an increase in consumption, while five others – Lithuania, Estonia, Finland, Cyprus and Greece – achieved reductions exceeding 10 %.

Beer is the most consumed alcohol (41 %) in the EU, followed by wine (37 %) and spirits (22 %).

Alcoholic beverages and their particularities

Alcoholic beverages are drinkable liquids containing ethanol (ethyl alcohol C₂H₅OH). As ethanol is the main type of alcohol found in alcoholic beverages, the term 'alcohol' is used as a synonym for ethanol and, by extension, for alcoholic beverages. These beverages vary in their alcohol content, typically expressed as a percentage by volume, representing the millilitres of pure ethanol contained in 100 millilitres of the beverage measured at 20°C.

Alcoholic beverages can be broadly divided into fermented and distilled drinks. Fermented beverages include beer, wine and cider, produced when yeast converts sugars into ethanol through fermentation. Because yeast generally ceases to function at alcohol concentrations of around 10‑15 % by volume, beverages with higher alcohol content usually require distillation. Distillation is a process that concentrates alcohol by separating it from the fermented liquid, producing spirits with a significantly higher alcohol concentration.

As alcoholic drinks are made from natural sources of sugar and starch, their energy value depends on the fermentation and distillation processes. One gram of pure alcohol has 7 kilocalories (kcal) and any residual sugar after fermentation adds a further 4 kcal/gram. This is more than protein and carbohydrates/sugars, which both have 4 kcal/gram, but less than a gram of fat, which has 9 kcal.

Data source: US National Library of Medicine, Calorie count of alcoholic beverages, 2024. Graphic: Samy Chahri, EPRS.

The number of calories in alcoholic drinks varies depending on the size of the drink, the percentage of alcohol and the amount of other ingredients (see Figure 4). A 'standard drink' containing 10 g of pure alcohol – approximately a bottle of regular beer, a small glass of wine or a shot of spirits – would contain at least 70 kcal. Ready-to-drink spirits containing sweetened mixers and drinks that include cream, such as cocktails, have additional calories from fat. Despite their high energy value, alcoholic drinks have very few nutrients, such as protein or vitamins and minerals.

EU legal framework

The main EU food labelling legislation is Regulation (EU) No 1169/2011 on the provision of food information to consumers (the 'FIC Regulation'), which requires certain mandatory information to be provided on the labels of prepackaged foods and drinks. This information includes the name of the food; net quantity; and the name and address of the company marketing the food. Additionally, consumers must be provided with a list of ingredients and a nutrition declaration, which includes the energy value as well as the amount of fat, carbohydrates, sugar, protein and salt.²

The FIC regulation exempts producers of alcoholic beverages containing more than 1.2 % by volume of alcohol from the obligation to provide a nutrition declaration and a mandatory list of ingredients. By contrast, this information must be included on the packaging of low-alcohol drinks.

Article 16(4) requires the Commission to produce a report addressing whether alcoholic beverages should be covered by the requirement to provide the energy value in the future, as well as the reasons justifying possible exemptions. Published in 2017, the report concluded that there were no objective grounds justifying the absence of such information (see next section).

The legislation further requires the indication of alcoholic strength by volume (% vol.) on labels (Article 9).

Article 21 also mandates the labelling of the most common allergens found in alcoholic beverages, including sulphites, eggs and milk products in wine. However, this provision applies only to the 14 allergens listed in Annex II, meaning that less common allergens may remain undisclosed in the absence of a full ingredient list.

In addition, beverages containing more than 10 % alcohol by volume are exempt from the requirement to indicate a date of minimum durability.

Article 41 allows EU countries to maintain national measures regarding ingredient listing for alcoholic beverages pending the adoption of harmonised EU rules. Food business operators may also provide ingredient information voluntarily. Similarly, where nutrition declarations are provided voluntarily for alcoholic beverages, they may be limited to the energy value alone.

Several other EU legal acts also contain provisions relating to the labelling of alcoholic beverages.

Regulation (EU) 2019/787 defines the categories of spirit drinks – such as rum, gin and liqueur – and requires labels to indicate the agricultural raw material used to produce the ethyl alcohol they contain. It also lays down rules on the indication of maturation periods and on the protection of geographical indications for spirit drinks.

Under Regulation (EC) No 1924/2006 on nutrition and health claims made on foods, alcoholic beverages containing more than 1.2 % alcohol by volume may not bear health claims. Only nutrition claims referring to low alcohol levels, reduced alcohol content or reduced energy content are permitted.

Rules governing the definition, description, labelling and protection of geographical indications for aromatised wines, wine-based drinks and wine-product cocktails – such as sangria and Glühwein – are set out in Regulation (EU) 2021/2117 establishing a common organisation of the markets in agricultural products, as amended by Regulation (EU) 2021/2117 under the common agricultural policy reform package. The revised rules have applied since 6 December 2021 (see text box below).

Industry self-regulatory commitments

A 2017 European Commission report on mandatory labelling of the list of ingredients and nutrition declaration of alcoholic beverages concluded that there were no objective grounds that would justify the absence of such information and invited the industry to present 'a self-regulatory proposal that would cover the entire sector of alcoholic beverages'.

In 2018, the European alcoholic beverages sectors submitted a self-regulatory proposal together with sector-specific annexes for beer, spirits, wine, cider and fruit wine. The proposed labelling information included ingredients, energy and nutrition information (energy, total fat, saturated fat, carbohydrates, sugars, protein and salt) per portion size as well as per 100 ml. The proposal allowed for this information to be provided either on the label or off-label through a web link, QR code, bar code, or other smart technologies. The sectors promised to report on implementation progress by 2021, but did not advocate for a common legally binding deadline.

Brewers of Europe – including 28 national brewers' associations and five corporate members – pledged to include ingredients and nutrition information on labels by 2022. Information provided on their website claims that, by October 2022, an estimated 95 % of beer volumes sold in cans and bottles provided information on ingredients and an estimated 88 % of beer cans and bottles displayed nutrition or energy values.

In 2019, the representatives of the spirits industry signed a memorandum of understanding (MOU) committing to providing the energy value on the physical label and the list of ingredients as well as full nutritional values off-label by 2022. As part of the MOU, spiritsEUROPE – the European representative body for producers of spirit drinks, which comprises 30 national associations and 11 leading spirits producing companies – committed to publishing three annual implementation reports. Although the initial implementation phase of the MOU ended on 31 December 2022, spiritsEUROPE decided to continue reporting on the rollout progress annually. Therefore, four implementation reports on self-regulatory commitments were made available respectively in 2021, 2022, 2023 and 2024. The latest report showed that, by the end of 2024, over 70 % of the total EU market had spirits with on-label energy information.

In 2019, spiritsEUROPE launched the responsibledrinking.eu website and the national information websites (scroll down to 'Country information') to which it links. The website provides information on responsible drinking and on how to assess calories in alcoholic beverages. It also offers nutrition information, lists of ingredients and production process information. In 2024, spiritsEUROPE, along with 20 European trade associations representing a diverse range of industries and services, called on policymakers to adopt a coordinated approach to product information through digital means.

National measures: Health information on alcohol labels

Data source: WHO, Health evidence network synthesis report, 2020. Graphic: Samy Chahri, EPRS.

EU countries may adopt additional labelling requirements following a specific notification procedure and a positive assessment from the European Commission. Four EU countries – France, Germany, Ireland and Lithuania – have legislation on health information (e.g. warnings about drinking while pregnant, driving, or underage, or general health risks). (See Figure 5.)

Nine EU countries – Austria, Bulgaria, Croatia, Czechia, Greece, Ireland, Lithuania, Portugal and Romania ³ – have some legislation in place on ingredient listing and only one – Ireland – has a requirement for listing the nutritional value.

Ireland is set to become the first EU country – and the second worldwide after South Korea – to require cancer warnings on alcohol labels. Although the measures were initially due to apply from May 2026, press reports in July 2025 indicated that implementation had been postponed following pressure from the alcohol industry and concerns over international trade implications. Under the Irish legislation, alcoholic beverages would have to display three health warnings: on the dangers of alcohol consumption, the risks of drinking during pregnancy, and the direct link between alcohol and cancer.

Research evidence on alcohol labelling

Complementary measures to reduce alcohol harm

Data from the WHO shows that in many EU countries, alcohol is more affordable today than it was 20 years ago, which has a negative impact on health. The WHO considers that increasing the price of alcohol through taxation and floor pricing is one of the most effective interventions for reducing alcohol-related harm. Research shows that a 10 % increase in alcohol prices can lead to a 5 % reduction in consumption. 

Indeed, specific excise taxes – based on alcohol content rather than volume or value – are considered the most effective tax type because it directly targets the harmful substance and encourages the production of lower-strength beverages. Similarly, minimum unit pricing – which sets a legal 'floor price' per unit of alcohol – targets the cheapest, high-strength products favoured by heavy and underage drinkers. Finally, ad valorem taxes based on the product's value are less effective as they can be bypassed by consumers switching to cheaper brands. 

Importantly, taxes must be adjusted regularly for inflation and income growth. If taxes remain stagnant while incomes rise, alcohol becomes more affordable, which often leads to increased consumption.

Opponents argue taxes may lead consumers to switch to illicit alcohol. However, WHO reports indicate there is no automatic link between higher taxes and increased illegal trade.

The application of taxes varies widely across EU countries, with different rates and coverage for different alcoholic beverages. Concerning wine, in the EU, 15 countries either do not impose excise taxes on wine or have a zero rate.

Data source: WHO, Alcohol, health and policy response in the EU, 2024. Graphic: Samy Chahri, EPRS.

Under the EU alcohol excise duty directive – last updated in 1992 – EU countries may apply a minimum excise duty rate of zero to wine. 

In 2022 the average cost of 10g of pure alcohol in the EU, weighted for the proportion of different types of beverages consumed, was €0.89 (€0.73 for 10g of pure alcohol for wine, €0.88 for beer, and €1.06 for spirits) – see Figure 6.

In various EU countries, alcohol affordability has increased over recent decades because excise duties and prices have not been adjusted to reflect inflation over time. WHO data shows that consumers in the EU can now buy 76 % more wine, 46 % more beer, and 37 % more spirits with their national per capita income than the average consumer in the WHO European region.

Importantly, alcohol taxation contributes to government revenues and can be reinvested. Because alcohol demand is relatively inelastic – meaning that consumers generally reduce consumption less than proportionally to price increases – higher alcohol taxes can both lower consumption and increase government revenues.

The Nordic 'alcohol monopolies' – shops that have the exclusive right to sell most alcoholic beverages in Finland, Iceland, Norway, Sweden and the Faroe Islands – have contributed to relatively low alcohol consumption and have helped to maintain higher prices and lower the harm. Another case in point is Lithuania, where, following a major increase in alcohol excise taxes in 2017, recorded per capita alcohol consumption decreased substantially.

Lithuania's 2017 tax policy: A clear case for alcohol prevention

In March 2017, Lithuania implemented sharp excise increases: 112 % for beer, 111 % for wine and 23 % for spirits. The reform aimed specifically at reducing affordability. As a result, per capita consumption of legal alcohol dropped from 13 litres in 2015 to 11 litres in 2023, the lowest level in a decade. Adult per capita consumption was thus estimated to decrease by 10.3 % in the period immediately following the 2017 tax increase.

A study by the Centre for Addiction and Mental Health (CAMH) showed that the policy generated over €100 million in new tax revenue within a year – a 20 % increase – while the government spent only €320 000 to implement it. At the same time, Lithuania saw lower rates of premature death caused by alcohol, saving over €35 million in productivity losses. Healthcare costs dropped by nearly €4 million. Thus, for every €1 invested in implementing these taxes, the country gained €420 in economic returns.

Data source: CAMH study. Graphic by: Samy Chahri, EPRS.

European Parliament position

The European Parliament has consistently supported harmonised alcohol labelling. In its 2023 resolution on non-communicable diseases, Parliament called for better information for consumers by improving the labelling of alcoholic beverages. More specifically, this involves providing information on moderate and responsible drinking, as well as introducing mandatory indication of the list of ingredients and nutrition information. Similarly, Parliament's 2022 resolution on the fight against cancer recalled that the lower the amount of alcohol consumed, the lower the risk of developing cancer. It also expressed support for the introduction of digital labelling.

Recent changes in wine labelling

A new regulation supporting the European wine sector was adopted by the Parliament and Council in February 2026.

Outlook and public expectations

The outlook for mandatory alcohol labelling in the EU remains uncertain, reflecting ongoing debate over public health objectives, regulatory considerations and differing political priorities among EU countries. Europe's Beating Cancer Plan envisaged the introduction of mandatory ingredient lists, nutrition declarations and health information for alcoholic beverages by 2024-2025, but implementation at EU level has progressed more slowly than initially anticipated.

Regulation (EU) 2026/471 introduced harmonised labelling provisions for non-alcoholic and reduced-alcohol wines but did not include the broader alcohol health-warning measures – notably, cancer-related warnings – discussed during the previous Commission mandate under Europe's Beating Cancer Plan. Ireland, which had been expected to become the first EU country to require mandatory cancer warnings on alcohol products, has postponed the application of those rules until September 2028.

Meanwhile, industry-led initiatives have expanded alcohol labelling practices unevenly across product categories and information types. By the end of 2024, around 70 % of spirits marketed in the EU reportedly displayed energy information on labels, while ingredient lists and health warnings remained considerably less common.

Consumer research nevertheless points to growing public interest in alcohol-related health information. A 2024 online survey conducted across 13 EU countries and Norway found that many respondents regarded alcohol health warning labels as acceptable, relevant and potentially effective, with cancer-related messages receiving comparatively high relevance scores. The survey also reported broad support for including health warnings on alcohol labels.

The evidence on the effectiveness of alcohol labelling measures also continues to expand. A 2024 systematic review of alcohol warning labels found that such measures can increase awareness and perceptions of alcohol-related risks, while some studies also reported reductions in alcohol purchasing and consumption. The review further suggested that larger, more visible and rotating warning labels tend to have greater effects.

Overall, alcohol labelling is likely to remain part of wider EU discussions on consumer information, public health policy, subsidiarity and the respective roles of legislation and voluntary industry action. Future developments will likely depend not only on scientific evidence and public expectations, but also on political consensus among EU countries regarding the appropriate balance between harmonisation, national prerogatives and public health objectives.