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A FAIR, HEALTHY AND 
ENVIRONMENTALLY-
FRIENDLY FOOD SYSTEM
EU SUGAR MANUFACTURERS’ CONTRIBUTION TO THE FARM TO FORK 
AND BIODIVERSITY STRATEGIES
July 2020

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A FAIR, HEALTHY AND ENVIRONMENTALLY-FRIENDLY FOOD SYSTEM
INTRODUCTION
Sustainability is not a new concept for EU sugar manufacturers. Over the 
years substantial efforts have been made to evolve:
• towards a zero-waste, circular economic production system based on 
reduced GHG emissions,
• towards more innovative and sustainable cultivation and production tools,  
• towards a competitive economic sector facing harsh international 
competition whilst helping farmers and rural communities generating a 
decent living.
CEFS stands behind the overall objective of the Green Deal and its related 
initiatives to make the EU’s economy sustainable.
With the COVID-19 pandemic, which has hit hard,  EU sugar producers 
have demonstrated exceptional responsiveness, flexibility and solidarity to 
continue supplying sugar and other products derived from beet processing 
to the EU food industry, retailers and consumers. Through industrial 
adaptation, the EU sugar sector has shifted a substantial part of its ethanol 
production from fuel to pharma-grade ethanol. 
The pandemic comes on top of several chal enges the agricultural community 
in the EU, and more specifical y the European sugar beet chain, is facing: 
producing sufficiently for a growing population, producing sustainably 
to address environmental and climate change issues, dealing with the 
recurrence of droughts and new pests, ensuring competitiveness in a sector 
that is exposed to harsh international competition, whilst generating a 
decent income to al . These chal enges and the answers we provide to them 
affect everyone, in particular rural communities, farmers and consequently 
primary food processors.
This brochure gives insights on how EU Sugar Manufacturers are wil ing to 
continue on this journey provided some key requirements are taken into 
account in the implementation of the Farm to Fork and Biodiversity Strategies.

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A FAIR, HEALTHY AND ENVIRONMENTALLY-FRIENDLY FOOD SYSTEM
CEFS supports the EU ambitions encrusted in the Farm to Fork (F2F) and 
Biodiversity Strategies. European food is already a global standard for safety 
and high-quality. Ensuring a global level playing field in international markets 
and the respect of EU sustainability standards will be key in achieving the 
objectives of the Strategies.
EU BEET SUGAR SECTOR’S JOURNEY TO 
SUSTAINABILITY: KEY FACTS AND NUMBERS 
+/- 80%
Every part 
of the beet 
of our GDP contribution 
is used, 
0%
(15.6 billion €) is generated 
translating 
in rural areas supporting 
into zero 
food waste
high-skilled jobs
10
Industry is well on track to reduce 
Sugar beet  is a 
key component 
its own, as well as its supply chain’s, 
of crop rotation 
greenhouse gas (GHG) emissions 
systems
by 2030 to be in line with the Green 
Deal objectives (minus 50-55% 
compared to 1990)
Sugar, which has been used 
for many centuries to make 
our traditional homemade 
EU bio-based 
SOIL & 
COMPOST
foods, plays a role in a 
circular economy ELECTRICITY
CONSTRUCTION
healthy and balanced diet 
adapted to consumers’ 
DISTRICT 
individual lifestyle.
HEATING
BIO GAS
FERMENTATION 
PRODUCTS
ANIMAL 
FEED
SUGAR 
PRODUCTS
LIME 
FERTILISER
VINASSE
BIOETHANOL
Footnote:  WiFOR (2017). The Economic Contribution of the EU Sugar Industry. All figures exclude the UK and Switzerland.

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A FAIR, HEALTHY AND ENVIRONMENTALLY-FRIENDLY FOOD SYSTEM
23.700 sugar factory jobs
Total jobs 
generated by the 
362.200
sugar industry 
Supporting 338.500 additional 
jobs along the supply chain
14 JOBS SUPPORTED FOR EVERY 
DIRECT JOB IN A SUGAR FACTORY
1KG
1KG
1KG
154,000 EUR 
PER EMPLOYEE
47%
(vs 57,000 EUR in the wider 
labour share 
food & beverages industry)
Jobs are industrial 
of GVA
Due to high efficiency
and highly-skilled
and capital intensity
We wish to share our positions on the various aspects the F2F and 
Biodiversity strategies address: 
1
2
3
4
CULTIVATION
PRODUCTION
NUTRITION
TRADE

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A FAIR, HEALTHY AND ENVIRONMENTALLY-FRIENDLY FOOD SYSTEM
1 CULTIVATING SUGAR BEET: GIVING FARMERS THE MEANS TO CULTIVATE 
SUFFICIENT, HIGH QUALITY BEET TO MEET CONSUMER AND INDUSTRY NEEDS
The EU Commission sets the goal of reducing by  supply the food chain. CEFS pleads for a credible 
2030 the overall use and risk of chemical Plant  approach with regard to targets and starting 
Protection Products (PPPs) by 50%. The sugar  baselines, taking into account the efforts already 
beet sector has substantial y reduced the use of  made which are explicitly recognized by the 
PPPs in the past years. Setting quantitiative targets,  Strategy. Availability of alternatives and agriculture 
could lead to dead-end situations in which farmers  practices such as Integrated Pest Management must 
are left without valid solutions to protect their crops  be maintained and boosted, whilst at the same time 
against certain diseases and pests and by extension  guaranteeing decent farmer incomes and sector 
where processors are lacking raw material to  competitiveness.
INTEGRATED PEST MANAGEMENT 
management and integration of different crop protection methods
Continuous monitoring for weeds, pests & diseases
Seed preparation 
Treatments against 
& sowing date
pests & diseases
ce
gen
er
g
in
ow
sowing of treated 
e s
. . from crop 
Crop 
Choice of 
Pr
& primed seed
ing/pre em
From sowing to crop 
establishment to 
rotation
varieties
establishment. .
harvest (strong focus 
on disease)
Post-sow
Weed control (chemical & mechanical)
Any reduction of chemical PPPs must be The recommendations for the future Member States’ 
accompanied by a clear framework that al ows the  national Strategic Plans will be key in this context and 
development and use of new innovative techniques  the Commission must ensure that Strategic Plans are 
including biotechnology and the development of  strictly monitored in a way that no new distortions of 
bio-based products which play a role in increasing  the single market emerge as a result of the proposed 
sustainability, provided they are safe for consumers  delivery model.
and the environment. The current lack of regulatory 
clarity for New Breeding Techniques prevents them  The EU Commission sets the goal of reaching at 
from becoming mainstream and a permanent part of  least 25% of the EU’s agricultural land under organic 
the agricultural toolbox in the EU. 
farming by 2030. CEFS ful y understands citizens’ 
cal s for more organic products and overall supports 
CEFS sincerely hopes that the results of the 
it. However, setting an unrealistic compulsory EU 
Commission study on the potential of new 
target will prove to be counter-productive and 
genomic techniques will final y lead to a proper 
could potential y destroy the “new-born” market 
regulatory framework based on state-of-the-art 
for organic sugar. To ensure the objectives set by 
scientific expertise and evidence.
the F2F and Biodiversity Strategies, there is a need 
for sufficient critical mass of sugar in order for 
The  economic sustainability of sugar beet  factories to process efficiently organic beets. This 
cultivation  is pivotal for the entire sector’s  is why secondary EU organic legislation must al ow 
competitiveness.  The Common Agricultural Policy,  Ion Exchange Resins (IER) for sugar production. The 
and direct payments, should be funded at least at  use of IER for organic sugar production is the only 
the same level as currently. The CAP should integrate  technical option that entails no change in the final 
the objectives of the Green Deal ensuring a proper  product composition, improves energy efficiency, and 
transition and leaving no people and sector behind.  reduces environmental impact.


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A FAIR, HEALTHY AND ENVIRONMENTALLY-FRIENDLY FOOD SYSTEM
2 ENSURING SUSTAINABLE FOOD PRODUCTION AND FOOD SECURITY
The  end of the quota system demonstrated in  The contractual relationship between beet 
2017/18 and 2018/19 that sugar manufacturers have  growers and sugar manufacturers is set out in a 
suffered the most from this change. According  comprehensive annex in the current Single CMO. 
to CEFS confidential survey on sugar production  There is no longer a unique beet price fixed at EU 
costs, over this period, EU average white sugar  level for all EU growers. More market orientation 
prices decreased by 35% whereas world market  is the new framework for EU agriculture sectors 
price went down by 32%. Costs related to beets only  set by the EU. It offers sugar beet farmers more 
decreased by 20%. The operating results of sugar  contractual security than in any other agricultural 
companies were under high pressure resulting in  sector stipulating inter alia that delivery contracts 
financial losses far higher than the reduction of beet  are compulsory and that the terms for buying sugar 
costs, restructuring measures in the form of factory  beet are to be fixed in compulsory agreements within 
closures and costs reduction programmes. 
the trade concluded between growers and sugar 
undertakings (or their respective organisations). 
The Commission Price Reporting Scheme has  Value-sharing clauses may be agreed between 
registered since December 2017 (> 2 years) an EU  a sugar producer and its beet suppliers. The 
white sugar price below the reference threshold of  comprehensive contractual relationship 
404€/t. This threshold is a benchmark for triggering  between beet growers and sugar manufacturers
private storage and other safeguard measures (i.e.  which is set out in detail in the current Single CMO 
withdrawal, import measures…). The situation we  regulation,  should be preserved in order not to 
are currently facing is complex due to a combination  undermine the competitiveness of the sector.
of external factors, out of control of the EU, as well as 
EU market tools which are no longer adapted to the 
post quota period and the globalized trade realities. 
To prevent new crisis in the sector, adequate 
monitoring is key. EU sugar manufacturers should 
be granted a derogation to competition law, if 
and when appropriate whatever the CAP legal 
basis. More specifical y, article 222 of the Single 
CMO should be interpreted or amended to ensure 
that producers in a broad meaning (not only farmers) 
are included in the scope. This is particularly true in  The sugar beet sector is able and wil ing to provide 
our sector where growers are producing beet and  substantial amounts of “green”, sustainable 
deliver them to their processors/producers who in  products, al owing further GHG reduction in other 
term mechanical y extract the sugar, the agricultural  sectors (e.g. raw materials for the production of bio-
product regulated by the Single CMO.
based products). This will be possible provided that 
an adapted enabling legal framework is properly set. 
The political will to replace traditional fossil based 
CEFS eagerly awaits the Commission Contingency 
products by bio-based alternatives should be 
plan for ensuring food supply in times of crisis and 
supported by an adequate market environment
the Commission intiatives to clarify of the scope of 
The use of sugar beets in renewable materials 
competition rules with regard to sustainability. 
needs investment and still faces high competition 
A swift and proper implementation by the 
from traditional, fossil-based products. In order to 
Commission of new market tools to tackle 
boost their relative competitiveness, it is therefore 
crisis adapted and fit for new realities of global 
important to help bio-based alternatives reach 
markets is a positive move and EU Sugar 
economies of scale and supporting the production 
manufacturers are ready to be part 
of bioenergy and bio-based products as alternatives 
of this process.
to fuel products. 


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A FAIR, HEALTHY AND ENVIRONMENTALLY-FRIENDLY FOOD SYSTEM
3 NUTRITION: ADEQUATELY ADDRESSING A SET OF COMPLEX AND MULTIPLE 
FACTORS FOR HEALTHY CONSUMPTION OF SUGAR
Healthy and sustainable diets are pivotal in fighting  on a sound scientific basis. This would require the 
overweight and obesity, root causes of diet-related  implication of EFSA. In the case of sugar, EFSA 
non-communicable diseases such as type 2 diabetes,  did not set an upper limit for sugars based on their 
cardiovascular diseases and certain types of cancer. 
effects on body weight and other issues such as 
type 2 diabetes, cardiovascular risk factors, and 
Obesity is a complex and multifactorial issue, but in 
dental caries, despite recognizing that high intakes 
the end always caused by an imbalance between 
of sugars in the form of sugar-sweetened beverages 
energy intake (consumption of all types of food 
might contribute to weight gain.1  We will need to 
and beverages, including sugars) and energy 
see the outcome of EFSA’s review based on the 
expenditure (the energy our body actual y uses). 
latest scientific data, which is expected in 2021.
Therefore, any measure taken with regard to 
nutrition in the context of the F2F must be framed 
in a way that encourages calorie reductions in 
products and in consumers’ diets.
Calorie reduction should be the new priority. There 
is already a broad range of reformulated products 
on the market (e.g. sugars-reduced and sugars-free 
versions). The current coexistence of regular and 
reformulated versions guarantees that consumers  CEFS supports initiatives that promote and 
can compose a varied and balanced diet that will suit  facilitate consumers’ informed choices. The 
their dietary needs. Several nutrients, among which  front-of-pack Nutri-Score scheme can be a tool to 
sugars, have been tackled at EU level. The EU must  complement the comprehensive information on the 
now take stock of what has already been done and  back-of-pack. Given the importance of energy intake 
address the issue of calorie reduction.
in weight gain, the consumer should also be able 
to readily view the energy content of the product 
Sugar is a multifunctional ingredient and cannot  next to any front-of-pack scheme. The use of the 
simply be “taken out” of food and drinks. Also,  Nutri-Score should not outshine the need for the 
less sugar does not necessarily mean fewer  nutritional information provided on the back-of-
calories, notably not in solid foods. In order to  pack, which avoids consumers being misled.
maintain the texture and structure, reducing sugar 
often requires adding other caloric ingredients (or  CEFS however remains sceptical about nutrient 
additives).  Thus, ensuring that sugar reductions  profiles for claims purposes and their ability to 
lead to simultaneous energy reductions is crucial  help fight obesity. If they focus only on certain 
to ensure that reformulation activities effectively  nutrients and ignore the products’ energy content, 
contribute to fighting obesity.
they are likely to al ow claims on certain products 
and not others despite these products’ similar impact 
CEFS is concerned about the potential setting of  on health, hence leading to deceptive claims (which 
maximum limits of sugars in foods. By focusing  is exactly what the Claims Regulation is meant to 
on limiting certain nutrients without looking at  prevent). It is worth recal ing that in 2008, EFSA, 
the bigger context of the calories and the diet,  whose advice is required by the Claims Regulation 
this measure would not tackle the real problem of  (EC) 1924/2006 on the question of nutrient profiles, did 
excessive calorie intake and weight gain. Also, given  not support sugars being a generic profiling criterion 
the political intervention in companies’ free choice  but stated that, if at al , sugars might be considered in 
of formulation and freedom of competition, the  the case of particular beverage/food groups (such as 
abidance with the proportionality principle would  sugar-sweetened beverages and confectionery).2
have to be ensured and would have to be based 
1. European Food Safety Authority, Scientific Opinion on Dietary Reference Values for carbohydrates and dietary fibre.  EFSA Journal 2010; 8(3):1462[77pp.]. doi:10.2903/j.efsa.2010.1462. 
2.  European Food Safety Authority, Scientific Opinion on Nutrient Profiles. The EFSA Journal 2008, 644, 1-44, p 14.

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A FAIR, HEALTHY AND ENVIRONMENTALLY-FRIENDLY FOOD SYSTEM
4 A LEVEL- PLAYING FIELD ON THE INTERNATIONAL SCENE REQUIRES 
A STRONG AND COHERENT EU POLICY ON TRADE 
The sugar sector is now operating in a  Tackling world market unfair government support 
deregulated environment at EU level due to the  (e.g. the subsidies provided by India to its sugar 
end of the production quotas on 30 September  sector), recognizing the sensitivity of EU production, 
2017. In contrast, at global level, the major sugar- ensuring efficient and strict Rules of Origin and 
producing players are increasingly supported and  avoiding imports that violate social/environmental/
protected. This creates unfair competition via  sustainability norms must become part of the new 
trade-distorting measures
European Trade Policy responding to a variety of 
new global chal enges and taking into account the 
lessons learned from the coronavirus crisis. This 
CEFS asks for a fair level playing field on 
is more than ever crucial in a context of uncertainties 
the world market. The F2F and Biodiversity 
related to the relations with the EU and the UK which 
Strategies need to address distortions 
risk to have damaging consequences for the sector
on international trade and unfair 
government support. 
We also eagerly await the Commission’s initiatives 
to avoid placing on the EU market of products 
It is essential that the sugar entering the EU market 
associated with deforestation or forest degradation. 
is not produced in such a way that violates social 
In this sense, the decision taken by Brazilian 
rights or environmental norms, nor with trade-
authorities in 2019 to al ow sugarcane cultivation in 
distorting direct or indirect government support. 
the Amazon region is a step in the wrong direction in 
view of the EU Biodiversity objectives for 2030.
DOMESTIC WHITE SUGAR PRICES COMPARED, EUR/TONNE
1,100
1,000
900
800
700
600
EUR/tonne
500
400
300
200
Jan-09 Jul-09 Jan-10 Jul-010 Jan-1 Jul-1 Jan-12 Jul-12 Jan-13 Jul-13 Jan-14 Jul-14 Jan-15 Jul-15 Jan-16 Jul-16 Jan-17 Jul-17 Jan-18 Jul-18 Jan-19 Jul-19 Jan-20
India (NCDEX futures)
Brazil (crystal)
EU (PRS)
US (beet wholesale)
London No. 5
Source: CEFS elaboration on the basis of public data European Commission, F.O. Licht, ISO, and USDA.



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A FAIR, HEALTHY AND ENVIRONMENTALLY-FRIENDLY FOOD SYSTEM
The EU Green Deal, the F2F and Biodiversity strategies raise hopes for a successful transition towards 
even more sustainable production systems. This transition must be well calibrated in order not to leave 
sectors/people behind or create frustations.
EU Sugar Manufacturers have made impressive efforts over the years, financially and technologically, 
to become a global standard for sustainability in world sugar production. Based on what is already 
achieved, CEFS and its members are ready to take further action. CEFS will take part in these discussions 
and contribute to constructive and workable solutions. 
To realistical y reach these objectives, for CEFS any EU action needs to be: 
•  science-based and relying on sound evidence from an environmental, social, nutritional but also 
economic point of view and on proper impact assessments;
•  coherent ensuring notably a sustainable marriage and coherence between the Farm to Fork Strategy and 
the different EU policies supporting an increase in environmental and climate ambitions, such as the CAP;
•  based on appropriate funds for the implementation of policies and for transition;
•  based on a coherent and strong trade policy.
Only in this way a sustainable food production and consumption chain can be created that works for 
producers, consumers and environment whilst reinforcing the EU competitiveness.
CEFS
Comité Européen des Fabricants de Sucre
Avenue de Tervuren 268 
B-1150 Brussels
xxxx@xxxx.xxx
Tel: +32 2 762 07 60 
Fax: +32 2 771 00 26
www.cefs.org 
www.sugardialogue.eu
twitter.com/SugarEurope
https://www.linkedin.com/company/cefs
CEFS stands for le Comité Européen des Fabricants 
de Sucre, or in English: the European Association of 
Sugar Manufacturers. CEFS is an international non-
profit organization and a recognised interlocutor for 
the EU Institutions since 1953, sharing knowledge and 
technical expertise on sugar. CEFS’ membership is 
composed of sugar-producing companies in the EU, 
the UK and Switzerland.