In its 2019 communication on the European Green Deal, the Commission announced measures to reduce the risk of false green claims (greenwashing). It specified in the 2020 new Circular Economy Action Plan that it would present a legislative proposal to require environmental claims to be substantiated by using the EU Product and Organisation Environmental Footprint (PEF and PEO) methods. Parliament adopted in November 2020 a resolution welcoming the announced proposal and calling for the development of clear guidelines and standards for green claims and commitments translating into strengthened eco-label certifications.

The Commission adopted its proposal on 22 March 2023. It establishes minimum requirements for the substantiation and communication of voluntary environmental claims and environmental labelling in B2C commercial practices, without prejudice to other EU legislation setting out conditions on environmental claims for certain products or sectors.

It requires the substantiation of explicit environmental claims to be based on an assessment that relies on recognised scientific evidence and state-of-the-art technical knowledge; demonstrates the significance of impacts, aspects and performance from a life-cycle perspective; takes into account all aspects and impacts to assess performance; demonstrates whether the claim is accurate for the whole product or only for parts of it (for the whole life cycle or only for certain stages, for all the trader’s activities or only a part of them); demonstrates that the claim is not equivalent to requirements imposed by law; provides information on whether the product performs environmentally significantly better than common practice; identifies whether a positive achievement leads to significant worsening of another impact; requires greenhouse gas offsets to be reported in a transparent manner; and includes accurate information. It also sets up specific requirements for comparative claims. 

Different types of claim would be needed for different levels of substantiation. The proposal would not require a single method nor a full life-cycle analysis for each type of claim.

The proposal also introduces requirements for the communication of environmental claims. For instance, claims could only cover the environmental impacts, aspects or performance that were assessed in accordance with the substantiation requirements.

Microenterprises would be exempted from some requirements. Some provisions ensure that SMEs receive help, including financial support, access to finance, specialised management and staff training as well as organisational and technical assistance.

The proposal also includes provisions on environmental labels and labelling schemes. In particular, it introduces a validation procedure for new schemes established by private operators that would be assessed by national authorities. There would be ex-ante verification of environmental claims and labelling schemes by an officially accredited independent body.

The proposal also includes a number of provisions on enforcement.

In Parliament, the file was allocated jointly to the ENVI and IMCO Committees. Cyrus Engerer (S&D, Malta) and Andrus Ansip (Renew, Estonia), respectively, were appointed co-rapporteurs.

The draft report was released on 11 October 2023. The co-rapporteurs proposed a range of measures to strengthen the proposal. Their key priorities were to ensure that the measures and mechanisms which the Commission proposal brings forward in relation to communication, substantiation and verification of explicit environmental claims are robust and future-proof, and that they provide adequate certainty for consumers and the necessary predictability for companies operating on the single market. At the same time, it is important that the proposal includes measures to support small and medium-sized enterprises in complying with the new requirements when making voluntary green claims.

In total, 821 amendments were tabled. On 14 February 2024, the joint committee report was adopted with 85 votes in favour, two against and 14 abstentions.

The report was adopted by Parliament at first reading on 12 March 2024, with 467 votes in favour, 65 against and 74 abstentions. Plenary adopted an amendment allowing the Commission to supplement the provisions on the use of certified units for residual emissions of a trader, through a delegated act, to establish a method for defining residual emissions, based on an emission reduction pathway compatible with limiting global warming to 1.5°C, taking into account technological feasibility and in consultation with the European Scientific Advisory Board on Climate Change.

Council adopted its general approach on 17 June 2024. Council introduced a simplified procedure for certain types of explicit environmental claims that are of a less complex nature, for which verification by a third-party verifier or a full substantiation assessment would not be necessary (e.g. for claims stating that an environmental characteristic of a product or a trader exceeds minimum requirements set out in other EU acts).

In the new legislature, Delara Burkhardt (S&D, Germany) and Sandro Gozi (Renew, France) were appointed co-rapporteurs.

On 4 December 2024, the joint committee voted to enter into interinstitutional negotiations on the basis of Parliament's first reading position. The first trilogue was held on 28 January 2025. The co-legislators presented their negotiating positions, and a mandate was given to the technical level to start work. The second trilogue was held on 24 April 2025. The negotiations focused on claims and labels and labelling schemes, information to consumers and verification, and access to justice and penalties.

On 20 June 2025, the Commission announced that it intends to withdraw the proposal. The third trilogue, scheduled for 23 June 2025, was cancelled.

The 2026 Commission Work Programme, adopted on 21 October 2025, lists the proposal as pending.

References:

• EP press release, 23 June 2025
• Council General approach, 17 June 2024
• European Parliament legislative resolution of 12 March 2024 on the proposal for a Green Claims Directive
• European Commission, Proposal for a directive on substantiation and communication of explicit environmental claims, COM(2023) 166, 22 March 2023
• European Commission, Have your say - Environmental performance of products & businesses – substantiating claims
• European Commission, The European Green Deal, COM(2019)640
• European Commission, A new Circular Economy Action Plan: For a cleaner and more competitive Europe, COM(2020)98
• European Parliament, Resolution of 25 November 2020 Towards a more sustainable single market for business and consumers, 2020/2021(INI)
• European Parliament, Resolution of 10 February 2021 on the New Circular Economy Action Plan, 2020/2077(INI)
• European Commission, 2026 Commission work programme (COM(2025)870), 21 October 2025

Further reading:

• European Parliament, EPRS, 'Green claims' directive: Protecting consumers from greenwashing, briefing, October 2024
• European Parliament, EPRS, Sustainable consumption: Helping consumers make eco-friendly choices, briefing, October 2020

Author: David Ashton, Members' Research Service, legislative-train@europarl.europa.eu