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Concerns around the illicit vaping market are on the rise, as a significant number of illicit vapes are already being sold illegally throughout the UK, and there are fear that should new vaping restrictions be brough in this could result in consumers looking to unregulated devices.

These unregulated vapes not only pose safety risks, they are also related to the sale of vaping products to minors. It is essential that more attention is given to the cracking down on counterfeit vapes.

What are illicit vapes and why do they matter?

Illicit vapes are devices and e-liquids that have been manufactured without adhering to the important health and safety regulations that have been set out to protect consumers. Vapes sold in the UK should strictly follow the requirements set out in the Tobacco Products Directive (TPD), an EU directive which was then transposed into UK law by the Tobacco and Related Products Regulations 2016 (TRPR). All nicotine containing products must also be approved through the Medicines and Healthcare products Regulatory Agency (MHRA) and appear on their ‘notified products list’.

The directives set out rules governing the manufacture, presentation and sale of tobacco and related products. Illicit vapes are those that bypass these directives, which means they are not subject to the same scrutiny and regulation, and have likely not been subject to the correct health and safety checks.

Illicit vapes are already a big problem

Illicit vapes are currently a big problem. The Government reports that 2 million illicit vapes were seized across England by Trading Standards from 2022 to 2023, this represents a significant number out there available to buy from unscrupulous sellers. There has also been evidence (collated by the House of Commons) that underage vapers have been found with illicit vapes.

Research of Trading Standards authorities actually revealed that between 2020 and 2023 the number of illicit vapes seized by Trading Standards increased 19 fold, with a whopping 4.18 million illegal vapes seized over the last three years, equating to three seized every minute.

The UK Government has set out its regulations for consumer e-cigarette products from the Medicines and Healthcare products Regulatory Agency (MHRA). This makes the Government, and other regularity bodies, responsible for implementing a number of provisions set out in the TRPR directives, including minimum standards for the safety and quality of all e-cigarettes and e-liquids.

What are the risks associated with unregulated vapes?

These safety regulations are so important because without them, it is possible for products to be created that bypass important considerations. When unregulated devices make their way to market, there is no way of knowing whether they’ve been built to the appropriate safety standards. This could result in anything from malfunctioning batteries to shoddy builds. There’s also a very real danger that un-regulated e-liquids may contain toxic substances or components that are not deemed as safe for consumption in the UK.

Trading Standards Officers told the BBC that illegal vapes have no safety controls on the amount of nicotine, heavy metals, and any other dangerous chemicals they contain. While Derby City Council revealed that an illicit market vape that was seized by the Trading Standards team and tested in an independent lab, contained components such as arsenic, lead and formaldehyde.

How the illicit vape market affects underage buyers

It’s also worth considering the fact that retailers who are willing to sell illicit vapes are likely to also have no qualms about selling to underage buyers. These retailers have proven that they are willing to flout regulations and that they are not prepared to consider the safety risks of counterfeit products – which makes it likely that they will also not consider the impact of selling to minors. By failing to crack down on the shops that sell illegal vapes, there is a missed opportunity to also cut down on the number of vapes available to children. Especially as a flavour ban may drive vapers to seek out illicit options.

To date, only two retailers have been prosecuted for selling illegal vapes. We argue that this does not provide sufficient deterrent and suggests that more robust measures are needed. At Evapo, we are strongly behind the proposition to enforce consequences on retailers who don’t follow important health and safety regulations. In our proposals to prevent youth vaping, we advocate for substantial fines, such as £10,000 on-the-spot penalties for retailers caught selling to under 18s, as a way to significantly deter illegal sales.

We also propose the introduction of a vaping licensing scheme, which would limit the sale of vaping products to specialist retailers, supermarkets, and other responsible retailers. This could substantially limit the availability of illicit products and also the sale of any vaping products to minors.

How vaping bans may cause an illicit market boom

There is a growing concern that bans on certain types of vapes or vape flavours may result in an illegal market boom, as consumers hunt for ways to continue to enjoy products they like. As reported in the Guardian, Scott Butler, executive director at environmental charity Material Focus, said that a ban might result in:

“hard to control illegal sales and an established illegal vape market. If the legitimate industry is banned, then there will be no mechanism to deal with all the operational challenges and costs of illegally sold vapes which have the same challenges.”

At Evapo, we share these concerns and have seen precedent in other countries like Australia, where a ban has led to a rise in illicit sales. In May 2023, Australia became the first country to announce a ban on the sale of recreational vapes. The UK Industry Vaping Association (UKIVA) reports that this move has driven up to 92% of vapers to buy their products through illegal channels. What’s more, as many as 100 million illicit products are smuggled into the country per year.

The Australian Government issued new reforms in January 2024 to tackle the influx of illegal vapes, including banning importation of all disposable vapes and a ban on the importation of all vapes without an import license and permit from the Office of Drug Control (from March 2024).

While the call for a general election had resulted in the Tobacco and Vapes Bill being abandoned, and the future of the disposable vape ban being uncertain, the reformed Government have revealed that they do plan to pursue both. They have started the process for both the disposable vape ban and the Tobacco and Vapes Bill to progress through Parliament. There are concerns that too many restrictions could cause the illicit market to be flooded with products no longer legally allowed for sale. Not only could these products be potentially dangerous, but the unscrupulous sellers who are willing to sell illegal products are the same ones who are willing to sell the to minors.

Andrej Kuttruf, CEO of Evapo, shared his concerns, saying:

“These bans will not stop youth vaping – but will simply shift the market underground, where children and adults alike will face unregulated, dangerous products.”

New data finds over 70% of illicit vapes in Staffordshire are sold by convenience stores

Following a Freedom of Information (FOI) request Evapo have been able to collect new data on a concerning surge of illicit vapes across Staffordshire. This data revealed that 73% of these illegal vaping products were found in convenience stores and grocers, while vape shops accounted for only 17%. This sheds light on the broader issue that the vast majority of unregulated products are being sold not by specialist vape shops, but instead by non-specialist outlets.

Staffordshire County Council’s Trading Standards team have seized thousands of illicit vapes and cigarettes so far this year in a series of raids, one of which saw the confiscation of over £5,000 worth of products including unregulated vapes containing up to 15 times more than the legal e-liquid limit.

This surge in illicit vaping products further highlights the need for stricter measures from both local and national authorities. Staffordshire Trading Standards are one of the authorities participating in national initiatives like Operation Joseph and Operation Cece, which are focused on curbing the sale of illegal vapes and tackling the illicit tobacco trade. This proactive approach has resulted in the seizure of nearly 9,000 illegal vapes and almost 60,000 cigarettes in Staffordshire since April 2023.

Victoria Wilson, Cabinet Member responsible for Trading Standards at Staffordshire County Council, emphasised the importance of these efforts:

“We are committed to removing these harmful products from Staffordshire’s marketplace. The sale of illegal vapes, particularly to minors, is a growing concern that we are determined to address through rigorous enforcement and public cooperation.”

Evapo CEO, Andrej Kuttruf, commented on the findings from the Freedom of Information request:

"The prevalence of illicit vapes in convenience stores is alarming and poses a significant risk to public health. These products often bypass safety regulations, making them particularly dangerous. Evapo supports the UKVIA's call for a licensing scheme, which would control who can sell these products and could raise up to £50m to support Trading Standards to give them the resource to actually enforce existing laws."

These findings really highlight the need for constant vigilance and strengthened enforcement if we are going to be able to protect consumers from the dangers of illicit vapes, which they could be purchasing and consuming from local non-specialist outlets without even knowing the harm they pose. We are committed to helping raise awareness and support initiatives that are promoting the safety and well-being of all vapers, and are helping to educate our customers on how to stop an illicit vape to help them protect themselves.

Trading Standards crack down on illicit vapes

In recent months we have seen more frequent reports of raids by Trading Standards uncovering large amounts of illicit vapes and illegal tobacco products. These illicit vapes are primarily non-compliant disposable vapes, being sold in small, independent shops like corner shops and convenience stores.

One such raid on stores in Tameside resulted in the seizure of almost £30,000 of reportedly counterfeit vapes, which were likely being sold to unsuspecting customers as genuine. The main concern with such products is that because they are not compliant with UK law, they are unlikely to have been subject to safety testing and may be dangerous or harmful.

Fortunately, these raids indicate that the illicit vaping market is being taken seriously by enforcement authorities like Trading Standards, and we are also seeing much stricter penalties being handed out to those locations found to be flouting the law. One example is a store in Peterborough which has been forced to close for 3 months following two separate raids which both found illicit vaping products. These closure notices have been rarely seen before now, but an example is certainly being set that those businesses who willingly continue to sell illegal products following previous raids and warnings will see much stricter punishment.

What is the Government currently doing about illicit vapes?

11 April 2023 – The Government issue their eight week ‘Youth vaping: call for evidence’ with the aim of identifying ways to reduce the appeal and availability of vaping products to minors.

12 October 2023 – The Government opened its consultation ‘Creating a smokefree generation and tackling youth vaping’. Responses from the general public were invited.

7 November 2023 - The King’s Speech introduces the intention for a 'Tobacco and Vapes Bill' which would give the Government new powers to regulate vaping products.

6 December 2023 – The Government’s consultation was closed. The responses were collated and an outcome prepared.

28 January 2024 – Prime minister Rishi Sunak announced government plans to introduce a variety of measures to tackle youth vaping, including proposals to ban disposable vapes and flavours. New regulations around illegal vapes will also be considered.

29 January 2024 – The full consultation outcome was published, outlining how the Government plans to move forward, and including additional funds for enforcement squads to tackle youth vaping and combat illicit vapes .

14 February 2024 - A petition titled ‘Don’t ban flavoured e-liquids for e-cigarettes’ was launched. If it reaches 10,000, the government will be required to respond.

21 February 2024 – The UK Vaping Industry Association (UKIVA) launch a Retailer and Distributor licensing framework that – if adopted - would generate £50 million each year to combat illicit vape sales.

6 March 2024 - The Government announced plans for a Vape Products Duty as part of the Spring Budget 2024, which could help fund illicit vape enforcement squads.

20 March 2024 - A Tobacco and Vapes Bill was introduced to Parliament, which will allow illicit vape enforcement squads greater power to deter irresponsible retailers.

16 April 2024 - The Tobacco and Vapes Bill received its second reading in the House of Commons and was voted to pass on to the committee stage

Late April 2024 - The committee stage for the Tobacco and Vapes Bill took place in late April, allowing for amendments and further debates on the individual clauses within the Bill.

22 May 2024 - The call for a general election was made.

30 May 2024 - Parliament was dissolved, and as the Tobacco and Vapes Bill had not yet passed it was abandoned along with all progress made through parliament thus far.

4 July 2024 - The general election was held, with the Labour party being voted into power.

17 July 2024 - The Labour Government revealed in The King's Speech that they plan to reintroduce the Tobacco and Vapes Bill in some capacity.

9 October 2024 - The All Party Parliamentary Group for Responsible Vaping launch an inquiry into the role of vaping in the UK.

5 November 2024 - The renewed version of the Tobacco and Vapes Bill is presented to Parliament.

26 November 2024 - The new Tobacco and Vapes Bill had its second reading in Parliament and was voted through to the committee stage.

1 April 2025 - The originally proposed date for the introduction of the primary legislation in the Conservative Government's Tobacco and Vapes Bill.

In the ‘Creating a smokefree generation and tackling youth vaping consultation: government response’ they recognise concerns that the suggested approaches may lead to increases in the sale of illicit tobacco and vaping product sales. They have committed to increasing their investment in enforcement agencies like Border Force and Trading Standards by £30 million per year, to help them enforce all current and future regulations on the sale of tobacco and vaping products.

One of the ways that this additional funding will be raised is through a proposed Vaping Products Duty, which was announced in the Spring Budget 2024. This duty will be applied to vape liquids, increasing based on the nicotine content of the e-liquid, and estimates suggest that in combination with tobacco duty it could raise over £500 million annually.

Deborah Arnott, chief executive of Action on Smoking and Health, explains:

“Putting excise duty on vapes gives much needed additional powers to Border Force and HMRC to stop the import of illegal vapes which are flooding the market and need to be brought under control."

While current regulations mean that retailers caught selling to minors can be hit with fines of up to £2,500, this is not an on the spot fine and local Trading Standards must issue warnings and endure court proceedings before a substantial fine can be issued.

The Government reported many respondents to the open consultation called for larger fines and penalties for illegal imports, sales, and trade of vaping products including the introduction of fixed penalty notices (FPN).

On 20 March 2024 the Tobacco and Vapes Bill was introduced to Parliament, as a first step in the process of gaining new powers which will allow for local enforcement agencies to issue a £100 on the spot fine for the underage sale or proxy purchase of tobacco and vaping products.

This would enable Trading Standards officers to take faster action and work as a stronger deterrent to those irresponsible retailers who are not taking age verification processes as seriously as needed. This proposed action would be in addition to the existing legislation, meaning that these penalties can be escalated if further illegal sales are made, starting with warnings and ending with a maximum fine of £2,500. In the case of serious offenders they may be able to apply for a court order to close down the business for a time.

How a vape licensing scheme could help enforce current laws

As part of our response to the Government’s call for evidence and open consultation and in our letter to the committee on the Tobacco and Vapes Bill, we advocated for the introduction of a vape licensing or registration scheme similar to the alcohol licensing scheme. This would ensure that only businesses holding a valid licence would be allowed to sell vaping products, making it easier for illicit vape enforcement squads to identify illegal activity and to better regulate the industry.

A member of UKVIA have recently published their framework for a retail and distributor licensing scheme for vaping products, detailing what such a scheme would and should look like. The framework lays out everything from the application process, to fees and requirements, to enforcement, and demonstrates how this would not only make regulation and enforcement within the industry easier, but also that it could raise an estimated £50 million in funds which can be used to further bolster enforcement agencies like trading standards.

To become a licensed seller would require businesses to agree to uphold all age verification requirements, along with agreeing to be subject to regular checks and test purchases, adhere to advertising standards, and provide the appropriate recycling facilities and information to customers. Failure to comply with these requirements could result in significant fines and even having their license revoked. You can read more about this in our blog post ‘Will there be a vape licensing scheme?’

How to avoid illicit vaping products

Illicit market vapes can be very convincing, making it difficult for the average consumer to spot a counterfeit. That said, there are a few things you can watch out for, including:

  • Misspellings or typos on the products or packaging, Mistakes are often a clear sign that a vape isn’t legitimate.
  • Plain and unbranded packaging. Most vape real products come in boxes that include branding and logos.
  • Likewise, you should expect to see a leaflet with instructions and an authenticity card inside the box.
  • All nicotine-containing vaping products must have a nicotine warning clearly printed on the front of the product, if this is missing it is a sign the product is not compliant
  • If the product is advertised as having a nicotine strength higher than 20 mg/ml. This is the highest nicotine strength allowed under UK law, anything above this is illegal and should not be used
  • If a vape kit is advertised as having a tank larger than 2ml. All refillable vape kits in the UK are limited to a 2ml maximum capacity
  • If a bottle of e-liquid is larger than 10ml but still contains nicotine. All e-liquids sold in a bottle larger than 10ml of e-liquid are required to be nicotine-free by law, and so if a vape juice is in a larger bottle but still contains nicotine it is likely to be unregulated
  • Vapes often also come with a warranty or manufacturers guarantee and if one isn’t included, you may have a fake.
  • Illicit vapes are often made with substandard materials, so look out for ill-fitting parts or warping.

One of the most crucial steps to avoiding illicit vapes is to only buy your products from trusted sellers. For more insights, check out our blog on how to spot fake vaping devices.

Sources

Health.ec 29/04/2014

Legislation.gov.uk 20/05/2016

Gov.uk 08/11/2023

acs.org.uk 26/04/2024

Commonslibrary.parliament.uk 12/01/2024

staffordshire.gov.uk 02/09/2024

staffordshire.gov.uk 29/12/2024

Bbc.co.uk 23/03/2023

Gov.uk 29/02/2016

Bbc.co.uk 14/02/2024

Derby.gov.uk 03/02/2023

Theguardian.com 12/09/2023

Ukvia.co.uk 2023

Tga.gov.au 2022

Gov.uk 12/02/2024

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