32023L2673

WHAT IS THE AIM OF THE DIRECTIVES?

• Directive 2011/83/EU aims to:
  • increase consumer protection by harmonising several key aspects of national legislation on contracts between consumers and traders;
  • encourage trade between European Union (EU) Member States, particularly for consumers buying online.
• The directive replaced the distance-selling directive (Directive 97/7/EC) and the doorstep-selling directive (Directive 85/577/EEC).
• Directive (EU) 2019/2161 on the better enforcement and modernisation of EU consumer protection rules amends Directive 2011/83/EU and other directives. The amendments increase protection for EU consumers in several areas, such as purchasing through online marketplaces¹, the transparency of price personalisation² and the ranking of online offers and consumer rights when using ‘free’ online services.
• Reflecting the rapid growth in financial services concluded at a distance (online or by telephone), amending Directive (EU) 2023/2673 adds a chapter introducing rules governing such contracts. It repeals Directive 2002/65/EC (see summary), the existing legislation dealing with consumer protection aspects of distance marketing of financial services, from 18 June 2026.
• In 2024, further rules were introduced by amending Directive (EU) 2024/825 to adapt Directive 2011/83/EU to the green transition and the circular economy.

KEY POINTS

Scope

• With some exceptions, such as healthcare and social services (and financial services until June 2026), Directive 2011/83/EU covers a broad range of contracts concluded between traders and consumers, such as sales contracts³, service contracts⁴, contracts for online digital content or digital services and contracts for the supply of water, gas, electricity and district heating.
• It applies to contracts concluded in shops and to contracts concluded off-premises (e.g. at the consumer’s home) or at a distance (e.g. online), along with contracts under which the trader supplies or undertakes to supply a digital service⁵ or digital content⁶ to the consumer, and the consumer provides or undertakes to provide personal data⁷.
• It also lays down additional information obligations for the providers of online marketplaces regarding the contracts that consumers conclude with different suppliers on the online marketplace. Moreover, it establishes rules governing the transparency of price personalisation and the ranking of online offers and consumer rights when using ‘free’ online services.

Information obligations

• Before concluding a contract, traders must provide to consumers, in clear, understandable language, information such as:
  • their identity and contact details;
  • the product’s main characteristics; and
  • the conditions that apply, including payment terms, the delivery time, the performance and duration of the contract, and termination conditions.
• In shops, information that is not already obvious must be provided.
• Information requirements, particularly on the right of withdrawal, are more detailed for contracts concluded at a distance (such as online, by telephone or mail order) and for contracts concluded off-premises (e.g. where a trader visits a consumer’s home).
• Specific information requirements exist for contracts concluded on online marketplaces. Online marketplaces must:
  • inform consumers whether a third-party supplier is a trader or a non-trader (i.e. another consumer);
  • warn the consumer that EU consumer protection rules do not apply to contracts concluded with non-traders; and
  • explain who is responsible for the performance of the contract: the third-party trader or the online marketplace itself.
• Traders must inform consumers when the offered price is personalised on the basis of automated decision-making.

• Directive (EU) 2024/825 amends Directive 2011/83/EU, introducing new rules to ensure that, at the point of sale, consumers are informed about the durability and reparability of products that they intend to buy. This information is designed to help them make more sustainable purchasing choices. Traders will be required to provide consumers with the following information before they make a purchase:
  • a reminder of the legal guarantee of conformity for goods⁸ and its main aspects, including that its minimum duration is two years, clearly displayed using a harmonised notice;
  • where a producer offers a commercial guarantee of durability at no additional cost, which covers the entire good and has a duration of at least two years, and informs the trader of this, the trader must inform the consumer using the harmonised label;
  • in the case of digital content and digital services, a reminder of the existence of the legal guarantee of conformity;
  • a reminder of the existence and the conditions of after-sales services and commercial guarantees;
  • in the case of goods with digital elements, or of digital content and digital services, the minimum period during which the producer or the provider will provide software updates.
• In the case of distance contracts, amending Directive (EU) 2024/825 requires traders to inform consumers of payment and delivery terms, including environmentally friendly delivery options and, where applicable, how complaints are handled.
• The European Commission has adopted Implementing Regulation (EU) 2025/1960 specifying the layout and content of the harmonised notice and label used to inform consumers of their rights.

Consumer financial services

Amending Directive (EU) 2023/2673 introduces rules regarding consumer financial services, such as the following.

• Pre-contractual information that traders must provide to consumers before they sign a contract. Consumers must have sufficient time to process and understand this information, and to make comparisons with other products so as to make an informed decision. Member States may opt to impose stricter national rules in this regard.
• The right of consumers to request human intervention so as to better understand the implications of a given contract on their financial situation, where a trader uses online tools such as chatbots.
• The requirement for Member States to introduce measures limiting the use of dark-pattern marketing techniques (interfaces that trick users into doing things they do not intend) to influence consumer choices.
• The addition to Directive 2011/83/EU of a ‘security net system’ for financial services that are excluded from other sectoral legislation or only partially covered by it.

Right of withdrawal

• Consumers can withdraw from distance and off-premises contracts within 14 days of the delivery of the goods or the conclusion of the service contract, subject to certain exceptions, without any explanation or cost. A standard withdrawal form provided by the seller suffices. If the consumers are not made aware of their rights, the withdrawal period is extended by 12 months.
• Exemptions apply in several circumstances, for example for perishable goods, sealed goods opened by the consumer that cannot be returned for health or hygiene reasons and hotel reservations or car rentals that are tied to specific dates. Exceptions also apply, under certain circumstances, to contracts for the supply of digital content that is not supplied on a tangible medium, if the performance has begun. When consumers withdraw from a contract, they must refrain from using the digital content or digital service and from making it available to third parties.
• Amending Directive (EU) 2023/2673 allows consumers to exercise their right of withdrawal from all contracts concluded at a distance by requiring their providers to ensure that their interfaces offer an easy-to-find withdrawal function.

No unjustified payment costs or additional charges

• Traders must not charge consumers fees for the use of a means of payment that are higher than the cost borne by the trader for the use of such means. In many cases, charging such fees is completely forbidden in accordance with the payment services directive (Directive (EU) 2015/2366 – see summary).
• When phoning a trader to enquire or complain about the contract concluded, the consumer must not pay more than the basic telephone rate.
• Traders must have consumers’ express consent when offering additional paid-for services. Pre-ticked boxes on an order form may not be used for such payments.

Penalties

• Directive 2011/83/EU requires Member States to introduce effective, proportionate and dissuasive penalties applicable to infringements of national rules transposing the directive. It also includes a list of criteria to be applied when imposing those penalties.
• Member States must ensure that when penalties are to be imposed in accordance with Regulation (EU) 2017/2394 (see summary) in the context of coordinated actions in relation to major cross-border infringements, they include the possibility either to impose fines through administrative procedures or to initiate legal proceedings for the imposition of fines, or both, the maximum amount of such fines being at least 4 % of the trader’s annual turnover in the Member State or Member States concerned. For cases where a fine is to be imposed in line with Regulation (EU) 2017/2394, but no information on the trader’s annual turnover is available, Member States must introduce the possibility to impose fines, the maximum amount of which must be at least €2 million.

FROM WHEN DO THESE RULES APPLY?

• Directive 2011/83/EU had to be transposed into national law by 13 December 2013. It applies to contracts concluded after 13 June 2014.
• Amending Directive (EU) 2019/2161 had to be transposed into national law by 28 November 2021. The rules contained in the directive began to apply on 28 May 2022.
• Amending Directive (EU) 2023/2673 had to be transposed into national law by 19 December 2025. The rules contained in the directive should apply from 19 June 2026.
• Amending Directive (EU) 2024/825 has to be transposed into national law by 27 March 2026. The rules contained in the directive should apply from 27 September 2026.

BACKGROUND

For further information, see:

• Consumer rights and complaints (European Commission)
• Guidance on the interpretation and application of Directive 2011/83/EU
• Factsheet – The New Deal for Consumers: What benefits will I get as a consumer? (European Commission).

KEY TERMS

1. Online marketplace. A service using software, including a website, part of a website or an application, operated by or on behalf of a trader that allows consumers to conclude distance contracts with other traders or consumers.
2. Price personalisation. Where a trader sets different prices for individual consumers or groups of consumers based on an automated analysis of those consumers’ preferences and willingness to pay.
3. Sales contract. Any contract under which the trader transfers or undertakes to transfer ownership of goods to the consumer, including any contract having as its object both goods and services.
4. Service contract. Any contract other than a sales contract under which the trader supplies or undertakes to supply a service, including a digital service, to the consumer.
5. Digital service. This is:
   • a service that allows the consumer to create, process, store or access data in digital form; or
   • a service that allows the sharing of or any other interaction with data in digital form, uploaded or created by the consumer or other users of that service.
6. Digital content. Data that are produced and supplied in digital form.
7. Personal data. Any information that relates to an identified or identifiable natural person.
8. Goods. These are:
   • any physical movable items, including water, gas and electricity when sold in a limited volume or a set quantity;
   • any physical movable items that incorporate or are interconnected with digital content or a digital service in such a way that the absence of that digital content or digital service would prevent the goods from performing their functions (goods with digital elements).

MAIN DOCUMENTS

Directive 2011/83/EU of the European Parliament and of the Council of 25 October 2011 on consumer rights, amending Council Directive 93/13/EEC and Directive 1999/44/EC of the European Parliament and of the Council and repealing Council Directive 85/577/EEC and Directive 97/7/EC of the European Parliament and of the Council (OJ L 304, 22.11.2011, pp. 64–88).

Successive amendments to Directive 2011/83/EU have been incorporated into the original text. This consolidated version is of documentary value only.

Directive (EU) 2019/2161 of the European Parliament and of the Council of 27 November 2019 amending Council Directive 93/13/EEC and Directives 98/6/EC, 2005/29/EC and 2011/83/EU of the European Parliament and of the Council as regards the better enforcement and modernisation of Union consumer protection rules (OJ L 328, 18.12.2019, pp. 7–28).

Directive (EU) 2023/2673 of the European Parliament and of the Council of 22 November 2023 amending Directive 2011/83/EU as regards financial services contracts concluded at a distance and repealing Directive 2002/65/EC (OJ L, 2023/2673, 28.11.2023).

Directive (EU) 2024/825 of the European Parliament and of the Council of 28 February 2024 amending Directives 2005/29/EC and 2011/83/EU as regards empowering consumers for the green transition through better protection against unfair practices and through better information (OJ L, 2024/825, 6.3.2024).

RELATED DOCUMENTS

Commission Implementing Regulation (EU) 2025/1960 of 25 September 2025 on the design and content of the harmonised notice on the legal guarantee of conformity and of the harmonised label for the commercial guarantee of durability (OJ L, 2025/1960, 2.10.2025).

Commission notice – Guidance on the interpretation and application of Directive 2011/83/EU of the European Parliament and of the Council on consumer rights (OJ C 525, 29.12.2021, pp. 1–85).

Directive (EU) 2019/771 of the European Parliament and of the Council of 20 May 2019 on certain aspects concerning contracts for the sale of goods, amending Regulation (EU) 2017/2394 and Directive 2009/22/EC, and repealing Directive 1999/44/EC (OJ L 136, 22.5.2019, pp. 28–50).

Directive (EU) 2019/770 of the European Parliament and of the Council of 20 May 2019 on certain aspects concerning contracts for the supply of digital content and digital services (OJ L 136, 22.5.2019, pp. 1–27).

Communication from the Commission to the European Parliament, the Council and the European Economic and Social Committee – A New Deal for Consumers (COM(2018) 183 final, 11.4.2018).

Regulation (EU) 2017/2394 of the European Parliament and of the Council of 12 December 2017 on cooperation between national authorities responsible for the enforcement of consumer protection laws and repealing Regulation (EC) No 2006/2004 (OJ L 345, 27.12.2017, pp. 1–26).

See consolidated version.

Directive (EU) 2015/2302 of the European Parliament and of the Council of 25 November 2015 on package travel and linked travel arrangements, amending Regulation (EC) No 2006/2004 and Directive 2011/83/EU of the European Parliament and of the Council and repealing Council Directive 90/314/EEC (OJ L 326, 11.12.2015, pp. 1–33).

Directive (EU) 2015/2366 of the European Parliament and of the Council of 25 November 2015 on payment services in the internal market, amending Directives 2002/65/EC, 2009/110/EC and 2013/36/EU and Regulation (EU) No 1093/2010, and repealing Directive 2007/64/EC (OJ L 337, 23.12.2015, pp. 35–127).

See consolidated version.

Directive 2008/48/EC of the European Parliament and of the Council of 23 April 2008 on credit agreements for consumers and repealing Council Directive 87/102/EEC (OJ L 133, 22.5.2008, pp. 66–92).

See consolidated version.

Directive 2002/65/EC of the European Parliament and of the Council of 23 September 2002 concerning the distance marketing of consumer financial services and amending Council Directive 90/619/EEC and Directives 97/7/EC and 98/27/EC (OJ L 271, 9.10.2002, pp. 16–24).

See consolidated version.