Open consultation

Tobacco and vapes: packaging, appearance and display

Published 10 July 2026

Introduction

The case for change

People deserve to live in a fairer UK, where everyone lives well for longer. By addressing the root causes and inequalities that shape ill-health, we will put the NHS in a more sustainable position and build a healthier country.

The governments of the 4 UK nations share a common goal: to secure a healthier future for the next generation by moving from sickness to prevention. As part of this, we are committed to creating a smoke-free UK and protecting future generations from the harms of tobacco and risks of nicotine addiction. We are doing this by:

• reducing smoking prevalence and supporting people to stop smoking
• improving the long-term health outcomes associated with smoking, including reducing deaths from cancer, cardiovascular disease and stroke
• stopping young people vaping

These ambitions are outlined in:

• the 10 Year Health Plan for England
• Scotland’s Population Health Framework and Tobacco and vaping framework: roadmap to 2034
• the Tobacco control strategy for Wales
• the Ten year tobacco control strategy for Northern Ireland

The effect of smoking and wider tobacco use

Smoking and wider tobacco use remains a significant public health concern. While adult smoking prevalence continues to decrease across the UK, the Office for National Statistics’ (ONS) Adult smoking habits in the UK: 2024 reported that 5.3 million people aged 18 years or over were current smokers. This was 10.6% of adults across the UK, and:

• 10.4% in England
• 12% in Scotland
• 11.4% in Wales
• 10.5% in Northern Ireland

Tobacco is a uniquely harmful product and smoking is the single most entirely preventable cause of ill health, disability and death in the UK. It is responsible for around 80,000 deaths a year, including:

• 64,000 deaths per year in England (as reported by the Department of Health and Social Care (DHSC) in Smoking profiles)
• 7,085 deaths per year in Scotland (as reported by Public Health Scotland in Smoking attributable hospital admissions and deaths, Scotland 2024).
• 3,800 deaths per year in Wales (as reported in analysis by Public Health Wales)
• over 2,000 deaths per year in Northern Ireland (as reported by the Department of Health in Northern Ireland in Health inequalities statistics)

Up to two-thirds of deaths in current smokers can be attributed to smoking (Banks and others, 2015) and smoking causes harm throughout people’s lives, not only for the smoker but for people around them. It’s a major risk factor for poor maternal and infant outcomes, significantly increasing the chance of stillbirth and asthma in children (Marufu and others, 2015; He and others, 2020).

Smoking causes around 1 in 4 of all cancer deaths in England (NHS England, 2023) and the NHS page on causes of lung cancer reports that smoking is responsible for the majority of lung cancer cases. It’s also a major cause of premature heart disease, stroke and heart failure and increases the risk of dementia (Livingston and others, 2020; Royal College of Physicians, 2018). Smokers lose an average of 10 years of life expectancy, or around 1 year for every 4 smoking years (Royal College of Physicians, 2018).

As a result, smoking puts significant pressure on the NHS. In England, for example, almost every minute of every day someone is admitted to hospital because of smoking (NHS England, 2023). Analysis by Cancer Research UK has shown that up to 75,000 GP appointments could be attributed to smoking each month in England, which is equivalent to over 100 appointments every hour.

In total, smoking costs the country £21.3 billion per year, including through lost productivity and health and care costs, which far outweighs tax receipts (Action on Smoking and Health, 2025). This includes costs to the NHS and social care of £3 billion. This is equivalent to the annual salaries of almost 500,000 nurses or 400,000 GPs, or over 380 million GP appointments.

Tobacco use also makes health inequalities worse between different income groups and areas. When tobacco expenditure is taken into account, an additional 500,000 households in the UK are classified as living in poverty (Reed, 2021).

Addiction is not a choice. Three-quarters of smokers wish they had never started smoking and the ONS ‘Adult smoking habits in the UK: 2024’ report showed that the majority of smokers want to quit.

The effect of heated tobacco

Heated tobacco is inserted into a heated tobacco device and heated to temperatures less than conventional cigarettes, releasing an aerosol. There is no safe level of tobacco consumption and all tobacco products are harmful (World Health Organization, 2025).

Heated tobacco use is currently low in the UK, with University College London’s Smoking Toolkit Study in January 2026 reporting its use in England at around 0.4% of people aged 16 years and over. However, awareness is rising. The Action on Smoking and Health (ASH) page on heated tobacco reports that in 2025, 28% of adults in Great Britain (England, Scotland and Wales) were aware of heated tobacco, compared with 9% in 2017 and 19% in 2024.

The effect of vaping and nicotine products

Research shows that vaping is less harmful than smoking and can be effective in helping adult smokers to quit (Office for Health Improvement and Disparities, 2022; Lindson and others, 2025). However, vapes are not harm-free and data on the longer-term harms of vaping is still emerging.

The main health risk to children and young people from vaping and nicotine products is nicotine addiction. Evidence suggests that children and young people may be more susceptible to any risks from nicotine use (Colyer-Patel and others, 2023).

In England, Wales and Northern Ireland, nicotine vapes should only be sold to people aged 18 or over and the same age-of-sale restrictions will apply to non-nicotine vapes from 29 October 2026. In Scotland, existing requirements mean nicotine and non-nicotine vapes should only be sold to people aged 18 or over. Despite this, a 2025 YouGov poll of young people for ASH found that youth vaping has more than doubled since 2021 among 11 to 17 year olds in Great Britain. In 2025, 1 in 5 children aged 11 to 17 had tried vaping. There is a similar situation in Northern Ireland, where the Public Health Agency’s Health Intelligence Unit data shows that 1 in 5 people aged 16 to 24 have tried vaping.

Evidence from the 2023 call for evidence on youth vaping shows us that vapes are appealing to children because of their packaging, product appearance, flavours and being easy to access. There is also emerging evidence of increased use of nicotine products, such as nicotine pouches, among young people in Great Britain (Brose and others, 2025; Tattan-Birch and others, 2025). According to ASH survey data, awareness of nicotine pouches among people aged 17 and under in Great Britain has increased, rising from 38% in 2024 to 43% in 2025. Nearly 4% of teenagers report having tried nicotine pouches.

Public support for change

In the responses to the call for evidence on youth vaping we heard that vape use among children is increasing and that children are using disposable vapes. Respondents told us that vaping products were often made to appeal to children and young people through:

• colourful packaging
• sweet flavours
• their display in shops
• online promotion, particularly on social media

The UK government and devolved governments launched the consultation creating a smoke-free generation and tackling youth vaping later in 2023. The response to this consultation was clear, with many respondents:

• backing the proposal to create a smoke-free generation (over 63% of respondents who answered the relevant question)
• supporting measures to curb youth vaping
• calling for tougher enforcement so that retailers and manufacturers could be held accountable

Polling found that the majority of the British public supported ending the sale of tobacco to future generations. A 2025 YouGov poll of adults for ASH reported that 65% of adults in Great Britain supported the goal to make Britain smoke-free. 

There was also overwhelming support for action on vaping. From the same poll, ASH also reported that:

• 78% of adults supported banning the names of sweets, cartoons and bright colours on vape packaging
• 77% of adults supported restrictions on vape advertising and promotion at point of sale

Action being taken

This public support provided a powerful mandate for change, and we have acted decisively on what we heard. The Tobacco and Vapes Act became law on 29 April 2026.

What the Tobacco and Vapes Act does

The act creates a smoke-free generation, by making it illegal for tobacco products to be sold to anyone born after 2008. In practice this means the age of sale for tobacco products will gradually rise over time, breaking the cycle of addiction and disadvantage.

It provides powers to:

• strengthen the existing ban on smoking in public places
• introduce heated tobacco-free and vape-free places in indoor and certain outdoor locations

The consultation Smoke-free, heated tobacco-free and vape-free places in England ran earlier this year and a government response will be published in due course. The devolved governments in Scotland, Wales and Northern Ireland will develop proposals in due course.

The act bans the advertising and sponsorship of vaping and nicotine products. It also provides powers to further restrict these products from being deliberately marketed and promoted to appeal to children. Introducing restrictions on packaging, flavours and display in shops will prevent the next generation from becoming addicted to nicotine.

The act provides powers to introduce a licensing scheme for the retail sale of tobacco, vapes and nicotine products in England and Wales. The Scottish Government has an existing tobacco and vape register for retailers of these products, which will be expanded to include all nicotine products and herbal smoking products. In Northern Ireland, the Department of Health is planning to extend its tobacco retailers register to include retailers of vapes and other nicotine products as an interim measure before consulting on a licensing scheme.

The act strengthens enforcement activity to support the implementation of the act, including introducing a new product registration scheme in the UK.

Ban on single-use vapes and Vaping Products Duty

Alongside the Tobacco and Vapes Act, we banned single-use vapes on 1 June 2025 and the UK government is also introducing a Vaping Products Duty from 1 October 2026.

Call for evidence on tobacco and vapes

The UK government and devolved governments are also considering other areas of potential future regulation that are not covered in this consultation.

To inform this work, we ran the call for evidence Tobacco and vapes: evidence to support legislation between October and December 2025. It covered topics such as ingredients, flavours and devices, which are included in this consultation. It also covered the proposed retail licensing scheme and the proposed product registration scheme. On these topics, we are reviewing responses and will consult at a later date. For more information, see ‘Next steps’.

Consultation overview

The Tobacco and Vapes Act includes a range of new regulation-making powers. The UK government and the devolved governments intend to use these new powers as soon as possible, for maximum public health benefit. This is part of a co-ordinated approach across the 4 nations to tackle the harms and risks of tobacco use, vaping and nicotine products.

As part of this consultation, we would like your views on proposals for UK restrictions on:

• tobacco packaging
• vaping and nicotine products
• appearance of heated tobacco devices and vaping devices
• retail display of tobacco, vaping and nicotine products

A full description of the products in scope of each measure is included in this consultation. This includes considering any potential impacts on:

• people and businesses
• groups of people with protected characteristics

We would like to gather as much detail as possible on each of the themes of the consultation. There will be an option to provide additional information and evidence to support your answer on specific multiple choice questions.

Areas of focus for proposed measures

This consultation asks questions on 3 areas of proposed regulation across the UK.

New packaging requirements

We are proposing to introduce new packaging requirements across the UK for:

• tobacco products (other than cigarettes and hand-rolling tobacco, which are already regulated)
• cigarette papers
• herbal smoking products
• heated tobacco devices
• vaping and nicotine products

The consultation asks questions on how to restrict the packaging of these products to prevent use by different groups of people. It also seeks views on proposals to restrict flavour descriptors for vaping and other nicotine products.

New restrictions on vape and heated tobacco device appearance

We are proposing to introduce new restrictions on the appearance of heated tobacco devices and vapes across the UK, to reduce the appeal of these products to different groups.

The consultation asks about the proposal to introduce new restrictions on:

• colours, images and branding
• digital screens on devices
• devices imitating other products

New restrictions on where products can be displayed in shops

We are proposing to restrict where shops across the UK can display:

• herbal smoking products
• cigarette papers
• heated and other tobacco-related devices
• vaping and nicotine products

These display proposals are intended to reduce the appeal of these products to different groups.

The consultation asks questions on which products should be covered by these restrictions and what the restrictions should include.

Territorial extent

Health policy is a devolved matter in Scotland, Wales and Northern Ireland. DHSC in England, the Directorate for Population Health in Scotland, the Health, Care and Prevention Group in Wales and the Department of Health in Northern Ireland are each responsible for improving public health. This includes reducing tobacco use by implementing comprehensive tobacco control strategies and tackling the health risks of youth vaping.

The UK government and the devolved governments in Scotland, Wales and Northern Ireland continue to work together on the Tobacco and Vapes Act, which applies across the UK, and on regulation that follows.

This consultation is being run by all 4 nations, and all 4 nations will continue to work together to develop proposals where appropriate.

Tobacco industry declaration

The UK is a party to the World Health Organization Framework Convention on Tobacco Control, so is obliged to protect the development of public health policy from the vested interests of the tobacco industry. To meet this obligation, we ask all respondents to disclose whether they have any direct or indirect links to, or receive funding from, the tobacco industry.

Terms used in this consultation

Bulk tobacconist

By bulk tobacconist we mean a shop that does not sell cigarettes or hand-rolling tobacco in small units. This includes duty-free tobacco areas and wholesalers. Bulk tobacconists may or may not also sell other things.

Cigarette papers

Cigarette papers are defined in the Tobacco and Vapes Act as including anything intended to be used for encasing tobacco products or herbal smoking products for the purpose of enabling them to be smoked.

Filters

Filters are defined in the Tobacco and Vapes Act as meaning a filter that is intended to be used when smoking a tobacco product or herbal smoking product (including a filter that forms part of, or that is intended to be inserted into, an item such as a cigarette holder or pipe).

Heated tobacco

By heated tobacco we mean a tobacco product that is inserted into a heated tobacco device and is heated to temperatures less than conventional cigarettes, releasing an aerosol.

Heated tobacco device

By heated tobacco device we mean a device that heats tobacco to generate a vapour or an aerosol for the purpose of inhalation through a mouthpiece (whether or not it can also heat other matter to produce a vapour or aerosol).

Herbal smoking product

A herbal smoking products is defined in the Tobacco and Vapes Act as a product consisting wholly or partly of vegetable matter and intended to be smoked, but not containing tobacco.

Nicotine product

A nicotine product is defined in the Tobacco and Vapes Act as a device (including any item intended to form part of a device) which is intended to enable nicotine to be delivered into the human body, or nicotine (or any substance containing nicotine) which is intended to be delivered into the human body. The definition excludes:

• tobacco products (and any device intended for its consumption)
• herbal smoking products (and any device intended for its consumption)
• cigarette papers
• vaping products
• medical devices
• medicinal products

Examples of nicotine products currently on the UK market include:

• nicotine pouches
• nicotine gum
• nicotine strips
• nicotine pearls

Only nicotine products that are not medicinally licensed are covered in this consultation.

Pack inserts

By pack inserts we mean positive quit-themed messages and advice inside or printed on packaging, to help smokers and users of other tobacco products to quit.

Smoked products

By smoked products we mean tobacco products that are smoked, including but not exclusively limited to:

• cigarettes
• hand-rolling tobacco
• cigars
• cigarillos
• pipe tobacco
• water pipe tobacco, also known as shisha tobacco or herbal shisha
• herbal smoking products

Smokeless tobacco

By smokeless tobacco we mean a type of tobacco product that is not smoked, but is intended to be consumed in any other way, for example chewing tobacco and snuff.

Specialist tobacconist

A specialist tobacconist is defined in the Tobacco and Vapes Act as a shop selling tobacco products by retail where more than half of the sales on the premises in question derive from the sale of cigars, snuff, pipe tobacco and smoking accessories. Specialist tobacconists may or may not also sell other things.

Tobacco product

A tobacco product is defined in the Tobacco and Vapes Act as a product consisting wholly or partly of tobacco and intended to be smoked, sniffed, sucked, chewed or consumed in any other way.

Tobacco-related device

A tobacco-related device is defined in the Tobacco and Vapes Act as a device, other than a vape, which enables a tobacco product to be consumed (for example, a heated tobacco device or pipe), or an item which is intended to form part of the device.

Vape

A vape is defined in the Tobacco and Vapes Act as a device, or an item which is intended to form part of the device, which vaporises substances other than tobacco for inhalation through a mouthpiece. This includes devices that also vaporise tobacco. Vapes are also known as e-cigarettes.

The term includes anything intended to be attached to the device with a view to imparting flavour. The term does not include medical devices or medicinal products.

Vaping product

A vaping product is defined in the Tobacco and Vapes Act as a vape or a vaping substance. This does not include medical devices or medicinal products.

Vaping substance

A vaping substance is defined in the Tobacco and Vapes Act as a substance, other than tobacco, that is intended to be vaporised (including aerosolised) by a vape (for example, an e-liquid).

Tobacco packaging

Harms caused by tobacco products

Cigarettes and hand-rolling tobacco make up the highest proportion of market share for tobacco products in the UK. However, other tobacco products are also used, such as:

• cigars
• cigarillos
• pipe tobacco
• waterpipe tobacco
• smokeless and heated tobacco

Herbal smoking products are also available on the UK market. While these products do not contain tobacco, they do contain chemicals that cause cancer, as well as tar and carbon monoxide (Rahman and others, 2022).

Cigarette papers and heated tobacco devices enable people to consume tobacco products, so also contribute to harm.

All of these products are harmful to health when used. Evidence shows that:

• cigar and pipe smokers have increased risk of death by all causes, increased rates of smoking-related cancers, major coronary heart disease events and lung conditions, compared to people who have never smoked (Shaper and others, 2003; Sharma and others, 2024)
• cigarillos are likely to expose users to many of the same toxicants found in cigarettes (Blank and others, 2011)
• there is toxicity from heated tobacco and (like other forms of tobacco) the aerosol released by heated tobacco devices contains compounds that cause cancer (Committee on Toxicity, 2017)
• smokeless tobacco (for example, chewing tobacco or snuff) causes cancers of the oral cavity and pancreas and is classified as a ‘group 1 carcinogen’ (International Agency for Research on Cancer, 2008)
• smokeless tobacco is associated with increased risk of tooth loss (Action on Smoking and Health, 2016)
• the use of waterpipes (such as shisha) increases the risk of lung cancer and oesophageal cancer (Darawshy and others, 2021)
• herbal cigarettes expose smokers to cancer-causing and gene-changing compounds and gases including carbon monoxide (Rahman and others, 2022)
• burning cigarette papers with their bleaches and dyes adds to the volume of smoke and the range of toxicants in the smoke, contributing to additional risks to smokers (Zumbado and others, 2019)

Packaging regulations in the UK and other countries

Cigarettes and hand-rolling tobacco are already subject to strict packaging regulations in the UK. However, other tobacco products, herbal smoking products, cigarette papers and heated tobacco devices are still sold in appealing packaging that is often colourful with distinctive branding.

There is well-established evidence that packaging increases the appeal of tobacco products and the likelihood of people using them. In 2014, an independent review of standardised tobacco packaging found that “branded packaging plays an important role in encouraging young people to smoke and in consolidating the habit irrespective of the intentions of the industry” (Chantler and others, 2014).

The Standardised Packaging of Tobacco Products Regulations 2015: post-implementation review showed reductions in adult smoking prevalence. There is also evidence that standardised packaging helps health warnings on packaging to be more prominent and effective (Moodie and others, 2021; British Heart Foundation and the ITC Project, 2020; Fong and others, 2009). Regulating packaging of tobacco products beyond cigarettes and hand-rolling tobacco may help improve the public’s health.

Many countries have regulated the packaging of tobacco products beyond the current requirements in the UK. Some have also standardised the packaging of herbal smoking products, cigarette papers and heated tobacco devices. 

These countries, including Australia, Ireland and Canada, require all tobacco products to be sold in plain packaging (drab dark brown with matt finish). Israel requires cigarette papers to be sold in plain packaging. Belgium introduced plain packaging requirements for cigarette papers on 1 June 2026.

Existing plain packaging requirements

The Standardised Packaging of Tobacco Products Regulations 2015 set out requirements for the plain packaging of cigarettes and hand-rolling tobacco. These requirements include the following.

Colour: Pantone 448C (drab dark brown) colour with a matt finish.

Branding: brand name permitted once each on front, top and bottom of pack. It must:

• be in a centred position
• be in Pantone Cool Gray 2 C
• be in Helvetica font size 14 point or less
• have only the first letter capitalised

The variant name must follow the same requirements, other than to be size 10 point font or less and positioned immediately below the brand name.

No promotional images or logos, additional colours or markings are allowed.

Shape: cuboid for cigarettes and cuboid, cylindrical or pouch for hand-rolling tobacco.

Packaging materials: carton or soft material for cigarettes.

Minimum size: 20 pack for cigarettes, 30 grams for hand-rolling tobacco.

An example of the plain packaging for cigarettes is below.

Figure 1: example of current cigarette packaging in the UK

The image shows an example of current cigarette packaging in the UK with plain packaging (as described above) and with text and photo health warnings.

Proposals for further plain packaging requirements

We propose to introduce similar plain packaging requirements for:

• all tobacco products, including but not limited to products such as:
  • cigars
  • cigarillos
  • pipe tobacco
  • waterpipe tobacco
  • smokeless and heated tobacco
• heated tobacco devices
• herbal smoking products
• cigarette papers

The tobacco products covered in our proposals do not include cigarettes and hand-rolling tobacco, which already have strict plain packaging requirements.

We propose making the plain packaging requirements for these products broadly the same as the existing requirements for cigarettes and hand-rolling tobacco. Some products may need specific plain packaging requirements, for example hand-rolling tobacco pouches can have a re-sealable sticker and cigarette packets can have a lining. If we proceed with the policy, we will engage further on the details of the plain packaging measures for specific products. This would mean that all tobacco products, heated tobacco devices, herbal smoking products and cigarette papers will have plain packaging.

We expect this would reduce their appeal and so reduce their overall use and the associated health harms. It will also provide greater consistency for packaging across the broad range of tobacco products.

While other devices can be used to consume tobacco, the tobacco industry has actively promoted heated tobacco devices specifically through dedicated stores, pop-up events and at festivals. This is despite the UK government clearly setting out that the advertisement of heated tobacco is banned. It is important to ensure that consumers are aware of the harms associated with these products, including by regulating their packaging.

You will be asked if you agree or disagree with proposals to introduce plain packaging for tobacco products, heated tobacco devices, herbal smoking products and cigarette papers.

Text health warnings on the packaging of cigarette papers and heated tobacco devices

The Tobacco and Related Products Regulations 2016 (TRPR) set out requirements for the health warnings on all tobacco product packaging and herbal smoking product packaging. As part of this, TRPR requires that all tobacco products and herbal smoking products must include a text health warning on the packaging. For example, for smokeless tobacco, it states: “this tobacco product damages your health and is addictive”.

We propose adding text health warnings to the packaging of cigarette papers and heated tobacco devices so that all tobacco products, heated tobacco devices, herbal smoking products and cigarette papers carry clear health warnings. The wording of these warnings should reflect the harms of using each product. Our aim is to make people more aware of the harms of using these products and reduce their use.

You will be asked if you agree or disagree with proposals to introduce text health warnings to heated tobacco devices and cigarette papers.

Picture health warnings on the packaging of more products and devices

Tobacco products for smoking, such as cigarettes, hand-rolling tobacco, certain cigars and cigarillos, pipe tobacco and waterpipe products, must be sold in packs that include a combined health warning. This means the packaging must show:

• a text warning
• a picture (such as an image of a clogged artery or open lung surgery)
• information to help people quit smoking

However, individually wrapped cigars and cigarillos, and packs of large cigars that weigh more than 3 grams each, do not currently need to include picture warnings. These products only require text warnings on their packaging.

We propose to introduce picture warnings on the packaging of:

• all tobacco products (including all cigars and cigarillos, heated tobacco and smokeless tobacco)
• herbal smoking products
• heated tobacco devices

The images on the picture warning may need to be related to the harms caused by using each specific product. If we proceed with the policy, we will engage further on the details of the picture warnings for specific products.

We do not propose including picture warnings for cigarette papers due to the small size of the packaging.

These proposals would ensure that all tobacco products, heated tobacco devices and herbal smoking products have picture warnings. We expect this would make users more aware of the harms of using these products and reduce their use.

You will be asked if you agree or disagree:

• with proposals to introduce picture health warnings to all tobacco products, heated tobacco devices and herbal smoking products
• that picture health warnings should not be on cigarette paper packaging due to their small size

Pack inserts in packaging for all tobacco and herbal smoking products and heated tobacco devices

The UK government, on behalf of the 4 nations, announced in its response to the Mandating quit information messages inside tobacco packs consultation that we intend to introduce positive quit-themed pack inserts. We expect that introducing pack inserts would help people to stop smoking.

An evaluation of the Canadian pack insert policy, for example, suggests that tobacco pack inserts can increase the likelihood of smokers making a quit attempt (Thrasher and others, 2014).

As a first step, we announced in November 2024 that we will introduce pack inserts into cigarettes and hand-rolling tobacco following consultation. Between November 2025 and January 2026 we ran the consultation Implementing inserts in cigarette and hand-rolling tobacco packs to gather views on the details of this policy.

We also ran the call for evidence on Standardised packaging for all tobacco products between November 2024 and January 2025. This also covered introducing pack inserts. We have published a summary of findings alongside this consultation.

We propose to include pack inserts in the packaging of:

• all tobacco products (including products such as cigars, cigarillos, pipe tobacco, waterpipe tobacco and smokeless and heated tobacco)
• herbal smoking products
• heated tobacco devices

These proposals are in addition to the work on pack inserts for cigarettes and hand-rolling tobacco which is happening separately. If we proceed with these proposals, we will engage further on the details of pack inserts for specific products.

We do not propose including pack inserts in cigarette papers due to the small size of the packaging.

These proposals would ensure that all tobacco products, herbal smoking products and heated tobacco devices include quit-themed messaging inside the packaging. Our aim is that this will help users of these products to quit.

You will be asked if you agree or disagree with proposals to:

• introduce quit themed pack inserts in the packaging of all tobacco products, herbal smoking products and heated tobacco devices
• not include pack inserts in cigarette paper packaging due to their small size

Time allowed to implement new packaging requirements

If and when new requirements are introduced, manufacturers will need time to update their packaging to comply. Retailers may also need time to sell old stock that does not comply with new law.

There should be a long enough notice period before new requirements come into force. This period would start from when the details of the new requirements are made clear. We have not yet decided what is the best way to share those details, but for example it could be in a government response to this consultation or when regulations are presented to the relevant national Parliament.

We propose that a minimum notice period of 12 months would be sufficient. This would mean all products covered by our tobacco products, herbal smoking products and heated tobacco devices packaging proposals would need to comply with any new requirements by the end of a 12-month implementation period. However, a longer or shorter notice period may be required, and we welcome views on this.

You will be asked if you agree or disagree with our proposal that there should be a minimum of 12 months notice from when the detail of any new requirements is clear.

Heated tobacco device appearance

Use of heated tobacco devices in the UK

Heated tobacco devices are electronic, typically rechargeable handheld devices that look similar to vapes. They work by heating tobacco to a lower temperature than conventional cigarettes, producing an aerosol.

Evidence shows there is toxicity from heated tobacco and, like other forms of tobacco, the aerosol released by heated tobacco devices contains carcinogens (Committee on Toxicity, 2017).

Unlike vapes, there is currently little evidence to conclude that heated tobacco is effective for helping people stop smoking. Heated tobacco use is currently low at around 0.4% (Smoking in England, 2026). However, people are increasingly aware of it, particularly younger people, who are more likely to have tried these products than older age groups (Action on Smoking and Health, 2025).

Since there is growing interest and awareness, we propose to restrict the appearance of heated tobacco devices. The tobacco industry has actively promoted heated tobacco devices through dedicated stores, pop-up events and festivals. This is despite the UK government clearly setting out that the advertisement of heated tobacco is banned. It is important to ensure that consumers are aware of the harms associated with these products, including by regulating their appearance.

Design and branding of heated tobacco devices

Heated tobacco devices are available in a range of colours and branding, including shiny gold finishes. These devices are visible when in use. Their appearance could appeal to people despite other action we are taking to discourage tobacco use, such as plain packaging. Allowing heated tobacco devices to have colourful designs may mislead consumers into thinking they are harm-free. Young people could particularly be drawn to attractive products.

There is currently no legislation regulating the design of heated tobacco devices beyond minimum safety requirements. This allows the devices to imitate other products such as game devices and stationery.

Analysis of the ‘Tobacco and vapes: evidence to support legislation’ call for evidence has fed into these proposals. Many responses to questions on the role of digital screens said that screens should only be used to display safety and device status information, and that anything more was unnecessary and risked increasing their appeal to young people. Similar points were made for vapes.

Restricting the colour and finish of heated tobacco devices

We propose to restrict the colour of heated tobacco devices to Pantone 448C (drab dark brown) with an opaque matt finish. Pantone 448C is the same colour as cigarette and hand-rolling tobacco packaging.

Heated tobacco devices can be:

• highly visible, particularly while in use
• shared between people
• left in places visible to other people, such as on tabletops

This is similar to how tobacco packaging is visible, rather than the specific tobacco products inside it, such as cigarettes. This is why we propose to align the colour with tobacco packaging.

As set out in this consultation, we are also proposing to extend Pantone 448C (drab dark brown) to the packaging of all other tobacco products, herbal smoking products and cigarette papers. Restricting heated tobacco devices to a dissuasive colour would reduce their overall appeal. We would expect this reduction in appeal to lead to fewer people using them to consume tobacco.

Restricting the colour of heated tobacco devices to Pantone 448C (drab dark brown) would ensure that devices look different from vapes, where we are proposing a white, black or grey colour with a matt finish and no variation in shade. We expect that a more dissuasive colour for tobacco products should help reinforce that vapes are less harmful and encourage adult smokers to quit.

Many of the considerations that apply to the colour of heated tobacco devices also apply to cosmetic lights, which can emit bright colours. To avoid undermining these restrictions, we propose banning lights that are only intended to increase the visual appeal of a product. This will not apply to functional lights, like those that indicate charge level.

You will be asked whether you agree or disagree with proposals to:

• restrict the colour of heated tobacco devices to Pantone 448C (drab dark brown)
• ban cosmetic lights

Restricting branding, imagery and artwork on heated tobacco devices

We expect that removing branding, imagery and artwork from heated tobacco devices will reduce the appeal of the device and help to reduce the prevalence of tobacco use.

We propose to prohibit heated tobacco devices from having images or artwork on them, except for any image that may be a regulatory requirement.

We also propose to limit branding to a single brand name, which would be subject to a set font, size and colour on the device.

The post-implementation review of standardised packaging of tobacco products showed reductions in adult prevalence and a sustained increase in quit success rates. We could expect similar outcomes by applying these practices to heated tobacco devices. This is because heated tobacco devices are highly visible when used, similarly to how packaging is visible for cigarettes and hand-rolling tobacco, and so promote the product.

You will be asked whether you agree or disagree with restricting branding, imagery and artwork on heated tobacco devices.

Restricting digital screens on heated tobacco devices

Digital screens on heated tobacco devices may contribute to their appeal. They can display vibrant images, artwork and videos. Screens may also enable additional digital capabilities, including interactive features, such as games.

However, digital screens can also provide consumers with important information, such as battery life.

We propose that screens should only display information that helps consumers use a heated tobacco product safely, rather than provide any visual appeal.

You will be asked whether you agree or disagree with proposals to restrict digital screens on heated tobacco devices to only display safety and status information.

Stopping heated tobacco devices imitating other products

We propose to limit the potential appeal of heated tobacco devices by stopping them from looking like other products, such as drink bottles and game devices. This currently seems to be limited in heated tobacco devices, but we need to ensure these harmful and addictive devices can never ‘mask’ themselves or appeal to anyone by copying the design of other products. This has already happened with vapes.

Our proposal to remove branding and imagery and restrict colours of heated tobacco devices may indirectly make it more difficult to imitate other products, meaning we may not need to legislate. However, other characteristics, such as size, shape or how the device functions may still allow it to imitate other products. So we are seeking views to check if this is correct and better understand if we need further regulatory measures.

This proposal is in line with the restrictions we are proposing for vape devices. It will ensure that heated tobacco devices do not appear more attractive than vapes.

You will be asked whether you agree or disagree with proposals to prevent heated tobacco devices from imitating other products.

Time allowed to implement new device requirements

If and when new requirements are introduced, manufacturers will need time to redesign their devices to be compliant. Retailers may also need time to sell old stock that does not comply with new law.

There should be a long enough notice period before new requirements come into force. This period would start from when the details of the new requirements are made clear. We have not yet decided what is the best way to share those details, but for example it could be in a government response to this consultation or when regulations are presented to the relevant national Parliament.

We propose that a minimum notice period of 12 months would be enough. This would mean heated tobacco devices would need to comply with any new requirements by the end of a 12-month implementation period. However, a longer or shorter notice period may be needed, and we welcome views on this.

You will be asked if you agree or disagree with our proposal that there should be a minimum of 12 months’ notice from when the detail of any new requirements is clear.

Vaping and nicotine product packaging and flavour descriptors

Vaping and nicotine product packaging appeal to children and young people

Evidence suggests that the packaging design as well as the flavour descriptions of vaping and nicotine products play a role in increasing their appeal to children and young people using these products in recent years (Laverty and others, 2016; Taylor and others, 2023; Taylor and others, 2025c).

In the call for evidence on youth vaping, respondents highlighted factors that were appealing to children, in particular:

• the role of bright colours
• child friendly images
• sweet-themed branding
• attractive flavour names

Current regulations

There are currently only limited restrictions imposed on packaging for vaping and nicotine products in the UK.

TRPR sets some requirements relating to the labelling and presentation of certain vaping products, including:

• child-resistant and tamper-evident packaging
• mandatory health warnings on the front and back of the packet
• a ban on misleading health claims
• information on ingredients and nicotine content
• a leaflet inside the pack with usage instructions, health risks and any necessary warnings
• a ban on packaging that suggests that a particular vaping product is less harmful than other vaping products

The General Product Safety Regulations 2005, and the General Product Safety Regulation (EU) 2023/988 as it applies in Northern Ireland, sets requirements that non-nicotine vapes and nicotine products like nicotine pouches must be safe for consumption. There are no specific requirements relating to the packaging of these products.

Previous consultation findings

In the response to the creating a smoke-free generation and tackling youth vaping consultation, more than half of respondents thought non-nicotine vapes (60%) and nicotine products (53%), like nicotine pouches, should come under a similar regulatory framework to nicotine vapes.

There was also strong support for action to limit the appeal of vaping and nicotine product packaging to young people. Most respondents supported banning all imagery and colouring for both vaping and nicotine product packaging. Several respondents highlighted the problems with flavour names that directly appeal to children and young people. However, some respondents recognised the potential need to maintain some branding elements to help adult smokers make informed decisions, given that many adult smokers use vapes as a tool to stop smoking.

Scope of these proposals

This consultation does not consider nicotine limits and ingredients. These issues were covered in the recent UK-wide call for evidence on future legislation, which included questions about flavour-related ingredients and heavy metals. As part of a phased approach to policy development in this area, we are consulting first on the use of flavour descriptors. Following analysis of responses to the recent call for evidence, and subject to further consideration, we may bring forward proposals relating to flavour ingredients.

Under these proposals, our definition of vaping products includes not only the vape device itself but also all vape components, such as mouthpieces and coils, and refill containers that are sold separately.

We propose to take a consistent regulatory approach across all these products. This would:

• help avoid loopholes
• make clear to producers and manufacturers what restrictions they must follow
• better support enforcement of regulations

International comparisons

Some countries have already restricted vape packaging. Finland, Denmark and Israel require packaging to be Pantone 448C (drab dark brown). Denmark applies the same restrictions on packaging to nicotine products. New Zealand and Canada have banned youth-appealing imagery on vape packaging.

Vaping Duty Stamps

From 1 October 2026, the UK government will implement a Vaping Duty Stamps scheme to support supply-chain tracking. This scheme will accompany the introduction of the Vaping Products Duty. From that date, all vaping products manufactured in or imported into the UK will be required to carry a duty stamp unless held under duty-suspension arrangements. The proposals in this consultation will be developed to align with these requirements.

For more information, see Preparing for Vaping Products Duty and the Vaping Duty Stamps scheme.

Restricting the colour on packaging for all vaping and nicotine products

Evidence suggests that brightly coloured packaging can increase the appeal of vaping to young people (Taylor and others, 2025a). A study led by the University of Stirling found that brightly coloured eye-catching vapes were appealing to young people (Smith and others, 2023b).

Nicotine pouch packaging can also often be brightly coloured, with sleek designs and appealing flavours. There are growing concerns about how they are marketed to appeal to children and non-smokers (Mays and others, 2023).

We propose that the packaging for vaping and nicotine products should be white. This includes vape components and refill containers sold separately from the vape device. Evidence suggests that:

• plain white vape packaging can reduce youth appeal without putting off adults who smoke (Taylor and others, 2023; Taylor and others, 2025c)
• plain white nicotine pouch packaging is unlikely to reduce their appeal to adults or perceptions of their harm relative to cigarettes (Taylor and others, 2025b)

This neutral-coloured background should help keep a clear difference from tobacco product packaging, which we propose should use Pantone 448C (drab dark brown). White packaging reflects the current evidence base that vaping and nicotine products are, in the short to medium term, less harmful than tobacco products. It would also help reduce the appeal of vaping and nicotine products to children and young people.

You will be asked whether you agree or disagree to introduce colour restrictions for all vaping and nicotine products.

Restricting imagery, branding, text and other promotional features on packaging for all vaping and nicotine products

Evidence suggests that white packaging without imagery and logos, and with minimal branding and limited flavour descriptions, can reduce the appeal of vaping products to young people, without putting off adults (Taylor and others, 2023; Taylor and others, 2025c).

To reduce the appeal of packaging to children and young people, we propose that the packaging for all vaping and nicotine products should not include imagery. This includes images of:

• the device itself
• components, for example mouthpieces or coils
• associated logos

Research on plain packaging has found that removing branding and imagery reduces the appeal of vaping products to young people. However, we recognise that there may be a case for allowing packaging of vape devices to display a picture of the product contained inside, for example mouthpieces and coils, to help consumers make informed decisions. We welcome views on whether any limited exemptions may be appropriate.

We also propose that all text on packaging, including any branding or brand names, should be in a standard colour, font and typeface. There should be no other promotional features on the outside or inside of packs or attached to the packaging. This includes links to social media accounts or any feature that suggests a financial benefit, such as vouchers or discounts. This approach would align with, and build on, existing requirements in TRPR that restrict certain elements on some vape packaging.

This proposal applies lessons from existing tobacco laws. The post-implementation review of standardised packaging of tobacco products found that plain packaging reduces:

• the appeal of tobacco products to young people
• adult and child smoking prevalence

We also expect this proposal will complement other proposals we are putting forward on device appearance and display restrictions. This includes limiting the appeal of vaping and nicotine product packaging in situations where products are not subject to display restrictions. For example, after someone has bought them or when they are shown for sale online.

Under this proposal, our definition of vaping products includes not only the vape device itself but also all vape components, such as mouthpieces and coils, and refill containers that are sold separately.

We propose to take a consistent regulatory approach across all these products. This would:

• help avoid loopholes
• make clear to producers and manufacturers what restrictions they must follow
• better support enforcement of regulations

You will be asked whether you agree or disagree with the proposal to restrict imagery, branding, text and other promotional features for all vaping and nicotine products.

Restricting the shape, materials and safety features of packaging for all vaping and nicotine products

Evidence on the appeal of tobacco packaging has found that packaging design, including shape, can affect how appealing products are to young people (Ford and others, 2013). This evidence may also apply to vaping and nicotine products, where certain packaging shapes could be used to increase appeal and make products seem more fashionable. For example, packaging shaped as lipstick and other novelty pack shapes.

We propose that packaging for vaping and nicotine products should use uniform shapes. For example, packaging for devices or coils should use a similar shape, such as a rectangular cuboid, depending on their dimensions.

We also propose that manufacturers should not use materials that enhance a product’s appeal, such as:

• glossy plastics
• holographic foils
• tactile features, for example fuzzy or velvety materials

This would help ensure that the packaging cannot seem toy-like or fun to look at or hold, making these products less appealing to children and young people.

Under TRPR, vapes must have child-resistant and tamper-evident packaging. We are now proposing to extend this requirement to all vaping and nicotine products to ensure a consistent approach to product safety.

You will be asked whether you agree or disagree with the proposals that all vaping and nicotine products should:

• have uniform shapes, with restrictions on materials and finishes that could enhance their appeal
• be child-resistant and tamper-evident

Restricting flavour descriptions on vaping and nicotine product packaging

There are currently thousands of vaping and nicotine product flavours on the UK market. Evidence suggests that children are attracted to the fruit and sweet flavours of vapes, both in their taste and smell, as well as how they are described (Soneji and others, 2019). We also recognise that flavours can play a role in helping adult smokers quit.

We recently ran a call for evidence on the ingredients used to create flavours for vaping and nicotine products. We are considering this evidence further before acting on ingredients.

Many flavour descriptions can appeal to children and young people, for example:

• ‘Blue Voltage’
• ‘Berry Boomer’
• ‘Strawberry and White Choc Pop’

Responses to the call for evidence on youth vaping and the creating a smoke-free generation and tackling youth vaping consultation highlighted the attractive wording used to describe flavours. This includes concept and sensory names like ‘Sunrise’ and sweet and dessert names like ‘Cotton Candy’.

Restricting flavour descriptions can make products less appealing to children and young people, without deterring adults from using vapes to help stop smoking (Taylor and others, 2025c). This was a theme that emerged out of responses to the smoke-free generation consultation.

Single lead flavour

We propose to restrict flavour descriptors on the packaging for vaping products, including refill containers sold separately from the device, and nicotine products to a single, recognised flavour name, like apple or strawberry. This would include restricting hyphenated or combined flavour names, such as blueberry-apple.

This proposal aims to reduce vaping among children and young people, while still allowing flavours to be available to help adults stop smoking.

You will be asked if you agree or disagree with the proposal to restrict flavour descriptors on all vaping and nicotine products to a single lead flavour.

Concept, sensory, food and drink categories

We propose restricting concept and sensory words from being used to describe a flavour.

A concept name refers to any flavour name that does not directly describe a recognisable food, drink or natural flavour. Instead, it conveys a mood, idea, brand or even a number or codename, rather than describing an actual flavour. This could include flavour names such as:

• ‘Unicorn Dream’
• ‘DC100’

For the purpose of this consultation, we define a flavour as any distinguishable taste or aroma, whether natural or from artificial sources, that can be recognised as resembling a food, drink or other consumable substance.

A sensory name refers to a recognisable taste, smell or sensation experienced when using a vape or nicotine product, such as ‘Mint Blast’.

We also propose restricting descriptor names of certain food and drink categories that appeal to children and young people. This includes:

• confectionery and sweets (such as ‘Chocolate’, ‘Candy’ and ‘Bubblegum’)
• desserts and cakes (such as ‘Brownie’ and ‘Cheesecake’)
• alcohol and other drinks (such as ‘Cola’)

You will be asked whether you agree or disagree with the proposals to restrict:

• concept and sensory flavour descriptors
• confectionery, sweets, dessert and cake name descriptors
• alcohol and drink name descriptors

Product information on and inside vaping and nicotine products packaging

There is currently a lack of consistency of consumer information provided on vaping and nicotine product packaging, especially on the front of packs. This affects:

• nicotine strength
• age-of-sale symbols
• waste disposal guidance

We propose that all vaping and nicotine products, including vape components and refill containers sold separately from the device, should have:

• a full list of ingredients, including flavour agents
• expiration details
• an age restriction symbol, for example a crossed-out 18 symbol
• a standardised display of nicotine strength, for example in milligrams, millilitres or as a percentage
• nicotine delivery per puff or pouch, where relevant

We are aware that packaging will already need to carry certain markings to comply with other relevant legislation. For example, information about waste display of electrical and electronic equipment, or Unique Formulation Identifier numbers (an EU requirement that applies to Northern Ireland but not Great Britain).

We also propose that relevant products should have a nicotine warning label on the front and back of the packaging. For example, this warning could say: “This product contains nicotine which is a highly addictive substance”. Packaging should also have clear instructions on appropriate waste disposal.

Where applicable, we propose that certain products have an instruction leaflet to inform users of any appropriate warnings and the adverse effects of nicotine.

These proposals would:

• reduce confusion for consumers
• support enforcement of age-of-sale policies
• help ensure products are used correctly and disposed of safely

A consistent way of communicating nicotine strength would help consumers make informed decisions when buying products, particularly adult smokers trying to quit.

Clear waste disposal information would help users dispose of vapes correctly and reduce pollution.

These proposals build on some of the requirements already in place for certain vapes under TRPR. This includes:

• a recommendation on the package to keep the product out of reach of children
• a ban on any element or feature that suggests a financial benefit, such as vouchers or discounts on the packet

You will be asked whether you agree or disagree with the proposal to require consumer information on all vaping and nicotine product packaging.

Time allowed to implement new packaging requirements

If and when new requirements are introduced, manufacturers will need time to update their packaging to comply with the new rules. Retailers may also need time to sell old stock that does not comply with the new law.

There should be a long enough notice period before new requirements come into force. This period would start from when the details of the new requirements are made clear. We have not yet decided what is the best way to share those details, but for example it could be in a government response to this consultation or when regulations are presented to the relevant national Parliament.

We propose a minimum notice period of 12 months would be enough. This would mean all products in scope of our vaping and nicotine product packaging proposals would need to comply with any new regulatory requirements by the end of a 12 month implementation period. However, a longer or shorter notice period may be needed, and we welcome views on this.

You will be asked if you agree or disagree with our proposal that there should be a minimum of 12 months’ notice from when the detail of any new packaging requirements is clear.

Vape device appearance

Vapes can feature a range of branding, imagery, colours, finishes and artwork that may appeal to children and young people, such as:

• cartoon characters
• vivid multicoloured patterns
• large eye-catching logos

They can also come in novel shapes that imitate products, such as game devices.

Current regulations

Many of these features were particularly common in single-use vapes, which were banned for sale and supply across the UK on 1 June 2025. However, new products have since come to market that are very similar in appearance to single-use vapes.

Research shows that bright colours for disposable vape devices were designed to appeal to young audiences in the UK (Smith and others, 2023a). It also shows that brand imagery directly on vaping devices helps target products at specific subgroups (Gomes and others, 2024).

Previous consultation findings

Respondents to the call for evidence on youth vaping provided a broad range of reasons why vapes appeal to children, including their packaging and product appearance. Nearly half (48%) said that this included colours. Respondents also highlighted that some vapes are shaped like products such as soft drink cans and toys.

As vapes are often on show when in use, a lack of action on their colourful appearance would undermine wider efforts to discourage children and young people from using vapes, such as introducing any restrictions on packaging.

The UK-wide creating a smoke-free generation and tackling youth vaping consultation found that there was strong support for regulating the product appearance of vapes. Nearly two-thirds (64.3%) of respondents thought banning colouring on vapes, among other changes, would be effective in reducing youth vaping.

In October 2025, we published a UK-wide call for evidence to support legislation. This considered elements of vape appearance, including:

• size
• shape
• the presence of digital screens

Some evidence received as part of that call for evidence has fed into these proposals. In particular, a large number of responses to questions on the role of digital screens highlighted that screens could appeal to young people and should only be used to display safety and device status information.

We are committed to stopping the next generation from being addicted to nicotine. So, we propose several restrictions on vape appearance, which are set out below.

Restricting the colour and finish of vapes

We propose restricting the colour of vaping devices, including all visible parts, to:

• white, black or grey, with only one of those colours per device
• a matt finish
• no variation in shades or opacity

We recognise this differs from our proposal to restrict vaping product packaging to white only. However, we want to give users some limited choice over the colour of the product they use. This would help strike a balance between preventing colours that appeal to children while ensuring some choice for adult smokers looking to quit.

We encourage respondents to consider whether it would be helpful to fully align the colour of vapes with their packaging.

Restricting the colour of vapes to a white, black or grey colour with an opaque matt finish and no variance in shade would also help differentiate them from heated tobacco devices, where we are proposing Pantone 448C (drab dark brown). This is because a more dissuasive colour for a device used to consume tobacco should help reinforce that tobacco products are more harmful than vapes.

Many of the considerations that apply to the colour of the device itself also apply to cosmetic lights, which can emit bright colours. To avoid these restrictions being undermined, we propose banning lights that are only intended to increase the appeal of a product. This would not apply to functional lights, such as those that indicate charge level. The tank would be allowed to be partially transparent so users can see the liquid level.

You will be asked whether you agree or disagree with proposals to restrict the colours of vaping devices, and whether lights should be banned.

Restricting branding, imagery and artwork on vapes

We propose that vapes are banned from having images or artwork, except for where these may be a legal requirement, such as warnings.

We also propose that branding should be limited to a single brand name, which would be subject to a set font, size and colour on the device. This aligns with the restrictions we are proposing for heated tobacco devices. It applies lessons from previous tobacco plain packaging laws and aims to reduce the appeal of vapes to children and young people.

You will be asked whether you agree or disagree with proposals to restrict branding, imagery and artwork on vapes.

Restricting digital screens on vapes

Digital screens may also play a part in making vapes more attractive to children and young people by displaying enticing and vibrant images, artworks and videos. Some screens also allow for further digital capabilities, such as playing games.

However, screens can also provide users with important information, such as battery life and nicotine content.

You will be asked whether you agree or disagree with proposals to ban digital screens on vapes, except where they display safety and status information.

Stopping vapes imitating other products

We propose to limit the potential appeal of vapes. We want them to stop looking like other products. Currently vapes can and do copy the design of other products, such as:

• highlighter pens
• refillable water bottles
• game devices

These product designs may purposely be appealing to children and young people. Vapes that look like highlighter pens and water bottles make detecting them difficult in settings like schools. This allows children and young people to vape more easily.

We propose to start from the principle that a vape should not be allowed to imitate another product. We are seeking your views on whether there should be any exemptions.

This approach aligns with the restrictions we are proposing for heated tobacco devices and should reduce the appeal of vapes to children and young people.

You will be asked whether you agree or disagree with proposals to not allow vapes to imitate the design of other products.

Time allowed to implement new device requirements

If new requirements are introduced, manufacturers will need time to redesign their devices to be compliant. Retailers may also need time to sell old stock that does not comply with the new law.

There should be a long enough notice period before new requirements come into force. This period would start from when the details of the new requirements are made clear. We have not yet decided what is the best way to share those details, but for example it could be in a government response to this consultation or when regulations are presented to the relevant national Parliament.

We propose that a minimum notice period of 12 months would be enough. This would mean all vapes would need to comply with any new regulatory requirements by the end of a 12 month implementation period. However, a longer or shorter notice period may be needed, and we welcome views on this.

You will be asked if you agree or disagree with our proposal that there should be a minimum of 12 months’ notice from when the detail of any new device requirements is clear.

Retail display

Evidence for restricting retail displays

Retail displays are a way to reinforce acceptability, promote accessibility and encourage the purchase of products (Stahlberg and others, 2010). Research suggests that displays of tobacco, vaping and nicotine products can be particularly appealing to young people (Ford and others, 2024).

There’s also evidence that current tobacco product display restrictions helped reduce smoking prevalence across the UK (Ford and others, 2020). Tobacco legislation coming into force between 2010 and 2015: post implementation review estimated that current restrictions have reduced the number of smokers by around 37,000 in the UK and had health benefits of about £2.8 billion between 2012 and 2021.

However, research shows that the continued retail display of cigarette papers, heated tobacco devices and other tobacco-related devices has limited the full effect of existing tobacco product display restrictions (Brocklebank and others, 2021). Evidence also shows that the display of vaping and nicotine products has been one of the main reasons behind the increase in their use in recent years (Ford and others, 2024).

Previous consultation findings

In the UK-wide consultation on creating a smokefree generation:

• 63.8% of respondents agreed that all tobacco products, cigarette papers and herbal smoking products should be covered under new age-of-sale measures
• 68.3% of respondents agreed that vapes should be kept behind the counter and should not be on display
• 52.9% of respondents supported applying the rules for vapes to other consumer nicotine products

International comparisons

Many countries have already restricted the display of vaping products in stores, including Australia, Canada, Denmark, Estonia, Finland, Iceland, the Netherlands, New Zealand, Norway and Slovenia.

Canada, Denmark, Finland, Estonia and Iceland also restrict the display of nicotine products.

Parts of Canada (Ontario) and Australia (Victoria, South Australia, Western Australia and Tasmania) already include tobacco-related devices and/or cigarette papers in their display regulations. In New Zealand, tobacco-related products such as cigarette papers are banned from display if they are sold alongside tobacco.

Existing legislation in the UK

The policy approach for the retail display of products in scope of this consultation is aligned across all 4 nations in the UK. However, due to differences in existing legislation, the retail display of tobacco has been split into separate sections, one related to England, Wales and Northern Ireland, and one related to Scotland.

When completing the survey, you will be asked which nations you want to answer questions about. Use this document as a guide when answering the survey and skip any sections that you would not like to answer questions on in the survey.

Restricting the retail display of cigarette papers, heated and other tobacco-related devices and herbal smoking products in England, Wales and Northern Ireland

This section covers proposed measures in England, Wales and Northern Ireland only.

Under existing legislation, tobacco products cannot be displayed inside or outside most shops across the UK. However, tobacco products can be shown to a customer following a request. The request must be by a person who is of the legal age of sale in England, Wales and Northern Ireland. We call this a ‘requested temporary display’ in this consultation.

Requested temporary displays enable informed purchasing decisions. As a result of a requested temporary display, other people nearby may also incidentally see these products. Current legislation in England, Wales and Northern Ireland also makes allowances for:

• restocking
• staff training
• pricing
• display unit maintenance

We call this ‘incidental display’ in this consultation.

The maximum visible area allowed for a display unit is 1.5 square metres in England, Wales and Northern Ireland, whether for a requested temporary display or an incidental display.

The requested temporary display of tobacco products generally takes place from behind a sales counter across the UK. We propose making this a legal requirement in England, Wales and Northern Ireland. This would prevent tobacco products from being seen in display units in other areas within a shop, such as at the end of aisles. In practice, tobacco products would be in closed display units behind a sales counter, or somewhere else in a shop that is not visible to customers, like in a drawer under the counter, as is already common practice.

You will be asked if you agree or disagree with the proposal to make requested temporary display of all tobacco products behind a sales counter a legal requirement.

In England, Wales and Northern Ireland, the current restrictions on the display of tobacco products do not cover cigarette papers, heated and other tobacco-related devices or herbal smoking products.

We propose to restrict the display of these products in England, Wales and Northern Ireland with most of the restrictions and allowances that apply to the display of tobacco products also applying to them. This includes:

• restricting the display of these products outside of all retail settings and inside most shops
• providing allowances enabling display unit restocking, maintenance, pricing, staff training and requested temporary displays
• allowing the same maximum visible area of 1.5 square metres

We also propose that requested temporary displays of these products should only be allowed from behind a sales counter, and not another location within a shop. This is the same way as we are proposing to make this a legal requirement for tobacco products.

You will be asked whether you agree or disagree with proposals to restrict the display of cigarette papers, heated and other tobacco-related devices and herbal smoking products in England, Wales and Northern Ireland.

Retail display of prices for cigarette papers, heated and other tobacco-related devices and herbal smoking products in England, Wales and Northern Ireland

Current regulations restrict how prices for tobacco products can be displayed across the UK. Prices must be presented in a consistent format using specific fonts and can only include the:

• brand name of the product
• number of units in the package or the net weight of the product
• price of the product

For cigars, the information displayed can also include the country of origin and dimensions. For pipe tobacco, it can include the cut and type of tobacco used.

Retailers can display prices for tobacco products in 3 formats:

• a single price list, which can be permanently displayed at each point of sale but must be text-only and meet size and font requirements
• a picture price list, which can include product images and can only be shown in response to a request by a person who is of the legal age of sale in England, Wales and Northern Ireland
• small price labels, which can be placed on the covered shelf or display unit where the product is kept

We propose to apply the same price display principles to:

• cigarette papers
• all tobacco-related devices, including heated tobacco devices
• herbal smoking products

You will be asked if you agree or disagree with our proposal to restrict the display of prices for cigarette papers, heated and other tobacco-related devices and herbal smoking products in England, Wales and Northern Ireland.

Exemptions to display restrictions for tobacco products, cigarette papers, tobacco-related devices and herbal smoking products in England, Wales and Northern Ireland

Across the UK, there are exemptions that allow for tobacco products to be on full display inside certain premises. These premises include:

• premises that are only accessible to people working in the tobacco trade
• specialist tobacconists
• bulk tobacconists, including duty-free tobacco areas

Display exemptions for trade premises

In England, Wales and Northern Ireland, tobacco products and prices can be displayed inside premises that are only accessible to people working in the tobacco trade, as long as the display is not visible to the public from outside. For example, tobacco products may be displayed inside a manufacturer’s premises when staff from a wholesaler come to buy tobacco products.

We propose to maintain these exemptions for tobacco products and prices at relevant trade premises and to allow them to display:

• cigarette papers
• heated and other tobacco-related devices
• herbal smoking products

This would allow these products to be displayed to people working in relevant trades, which is essential for legitimate business operations, but not to members of the public.

You will be asked whether you agree or disagree with our proposed display exemptions for relevant trade premises in England, Wales and Northern Ireland.

Display exemptions for specialist tobacconists

In England, Wales and Northern Ireland, specialist tobacconists are allowed to display tobacco products and prices, as long as they are not visible from outside the premises.

We propose to maintain this exemption for specialist tobacconists and to allow for the display of cigarette papers, heated and other tobacco-related devices and herbal smoking products.

However, we do not propose to allow for the display of vaping or nicotine products in these settings. This is because specialist tobacconists are defined by their sale of tobacco products. We are not proposing an exemption for vape shops. For more information on these, see the ‘Exemptions to display restrictions of vaping and nicotine products across the UK’ section. We also want to avoid a situation that would conflate the harms of tobacco, vaping and nicotine products.

You will be asked if you agree or disagree with our proposed display exemptions for specialist tobacconists in England, Wales and Northern Ireland.

Display exemptions for bulk tobacconists

In England, Wales and Northern Ireland, bulk tobacconists can display tobacco products and their prices, including in duty-free tobacco areas, as long as they are not visible from outside the tobacco area of the shop.

A bulk tobacconist is a shop that does not sell cigarettes or hand-rolling tobacco in small units (see ‘Terms used in the consultation’ section). For example, at least 90% of a bulk tobacconist’s cigarette sales must be in pre-packaged quantities of 200 or more cigarettes in their original package and the remainder must be in pre-packed quantities of 100 or more cigarettes in their original package . Bulk tobacconists can be open to the public, including to children and young people, and may or may not sell other things.

Some retailers that use the bulk tobacconist exemption, such as duty-free shops, also stock products aimed at children. These shops can attract large numbers of customers aged 17 and under. For example, an airport duty-free shop can display and sell super-size packs of toys, sweets and confectionery. While someone under the legal age of sale could also access specialist tobacconists, they are less of a concern because:

• the number of these retailers is small
• their products are typically not aimed at young people
• they are typically in areas with fewer young customers than duty-free shops

When the existing tobacco regulations were introduced, the government position was that:

• fewer people would see bulk products in settings like duty-free shops
• the bulk-size would be less appealing to children and adults trying to quit

Evidence suggests that a reduced price and increased volume of a product is more likely to attract purchases (Watt and others, 2022). We also now know that passengers travelling with children may be more likely to visit duty-free shops.

We previously assumed that if products were not exempt from display in these settings, customers would buy them elsewhere, such as outside the EU. However, international experience (for example in New Zealand) shows that tobacco display restrictions can be implemented without these exemptions. This suggests they are not necessary for trade and business continuity as it is separate to the existing trade exemption (see ‘Display exemptions for trade premises’ section).

Guidelines for implementation of Article 13 of the World Health Organization Framework Convention on Tobacco Control recommends comprehensive bans on the advertising, promotion and display of tobacco products, with minimal exemptions. The guidelines specifically state that the ban should also apply in ferries, aeroplanes, ports and airports.

Across the UK, we propose to remove this exemption for tobacco products and their prices and to not replicate it for any other products in scope of this consultation. Keeping the exemption would mean children and young people may still be able to see these products.

You will be asked if you agree or disagree with our proposal to remove the bulk tobacconist exemption in England, Wales and Northern Ireland.

Retail display of tobacco products, smoking-related products, heated tobacco devices and herbal smoking products in Scotland

This section covers proposed measures in Scotland only. This is because there are some differences in existing legislation in Scotland compared with England, Wales and Northern Ireland.

The main policy intentions in Scotland are the same as the rest of the UK. This is to restrict the display of:

• herbal smoking products
• tobacco-related devices

Existing legislation that will remain in place

In Scotland, under existing legislation, tobacco products cannot be displayed in a place where they are offered for sale. This legislation will remain in place.

Display restrictions also cover ‘smoking-related products’ in places where tobacco products are offered for sale. The list of smoking-related products is considered to cover all tobacco-related devices used for smoking currently on the market. This includes:

• cigarette papers
• cigarette tubes
• cigarette filters that do not form part of a tobacco product or herbal smoking product
• apparatus for making cigarettes
• cigarette holders
• pipes for smoking tobacco products (which would include waterpipes like shisha)

This existing ban will remain in place.

Requested temporary and incidental displays

Tobacco products and smoking-related products can be shown to a customer following a request. As outlined in the previous section, we call this a requested temporary display. Requested temporary displays enable informed purchasing decisions.

As a result of a requested temporary display, other people nearby may also incidentally see these products. Current legislation in Scotland also makes allowances to enable restocking, staff training, pricing and display unit maintenance where necessary. We call this an incidental display.

The maximum visible area of a display unit allowed as a result of a requested temporary display of tobacco products and smoking-related products in Scotland is 0.1 square metres. This is roughly the length of 8 to 12 cigarette pack facings. The maximum visible area of display unit permitted as a result of an incidental display is the same as for requested temporary displays.

Displaying products behind a sales counter

The requested temporary display of tobacco products and smoking-related products typically takes place from behind a sales counter. We propose making this a legal requirement in Scotland. This is to prevent tobacco products and smoking-related products from being seen in display units in other areas within a shop, such as at the end of aisles. In practice this will mean that tobacco products and smoking-related products will be in closed display units behind a sales counter. They could also be somewhere else in a shop that is not visible to customers, like in a drawer under the counter, as is already common practice.

Extending restrictions to heated tobacco devices and herbal smoking products

The existing display restrictions in Scotland do not cover heated tobacco devices or herbal smoking products.

We propose to ban the display of heated tobacco devices and herbal smoking products in Scotland. As part of this, we propose that the restrictions and allowances that apply to the display of tobacco products should apply to these products too. This includes:

• restricting the display of products in places where they are offered for sale
• allowances for incidental displays and requested temporary displays
• permitting the same maximum visible areas (0.1 square metres)

We also propose that the requested temporary display of these products should only be allowed from behind a sales counter, and not another location within a retail setting. This is the same way as we are proposing to make this a legal requirement for tobacco products and smoking-related products.

Waterpipes

To make it more practical for the retailers of waterpipes like shisha to comply with regulations due to their size, we are also proposing an expansion of the maximum permitted area of display as a result of a requested temporary display or incidental display for waterpipes.

You will be asked if you agree or disagree with our proposal to restrict the display of tobacco products, smoking-related products, herbal smoking products and heated tobacco devices in Scotland. This includes expanding the maximum visible area of a display unit for waterpipes like shisha.

Display of prices for heated tobacco devices and herbal smoking products in Scotland

Current regulations in Scotland restrict the display of prices for tobacco products and smoking-related products in places where tobacco products are offered for sale. Prices must be presented in a consistent format using specific fonts and can only include the:

• brand name of the product
• number of units in the package or the net weight of the product
• price of the product

For cigars, the information displayed can also include the country of origin and dimensions. For pipe tobacco, it can include the cut and type of tobacco used.

Retailers can display prices for tobacco products and smoking-related products in 3 formats:

• a single price list, which can be permanently displayed at each point of sale but must be text-only and meet size and font requirements
• a picture price list, which can include product images and can only be shown in response to a request by a customer
• small price labels, which can be placed on the covered shelf or display unit where the product is kept, pending sale

In Scotland, the current restrictions on displaying prices for tobacco products and smoking-related products will remain in place. In places where they are offered for sale, we propose to apply the same principles for the display of prices to:

• heated tobacco devices
• herbal smoking products

You will be asked if you agree or disagree with our proposal to restrict the display of prices for heated tobacco devices and herbal smoking products in Scotland.

Exemptions to display regulations for tobacco products, smoking-related products, heated tobacco devices and herbal smoking products in Scotland

In Scotland, there are exemptions that allow tobacco products, smoking-related products and their respective prices to be on full display inside certain premises. These premises include:

• trade tobacconists
• specialist tobacconists
• bulk tobacconists and duty-free tobacco areas

Display exemptions for trade premises

In Scotland, it is permitted to display tobacco products or smoking-related products and their prices in the course of business involving the sale of tobacco products to people working in the tobacco trade. For example, tobacco products may be displayed inside a manufacturer’s premises when staff from a wholesaler come to buy tobacco products.

In Scotland, we propose to maintain current exemptions for tobacco products and smoking-related products and their prices for relevant trade premises and to allow them to display:

• heated tobacco devices
• herbal smoking products

This would allow these products and their prices to be displayed to people working in relevant trades (which is essential for legitimate business operations) but not to members of the public.

You will be asked if you agree or disagree with our proposal to allow the display of heated tobacco devices and herbal smoking products and their prices in relevant trade premises in Scotland.

Display exemptions for specialist tobacconists

In Scotland, specialist tobacconists are permitted to display tobacco products (excluding cigarettes and hand-rolling tobacco) and smoking-related products as long as they are not visible from outside the premises. The display must also include a tobacco product health warning notice.

Prices can be displayed, but where they are visible from outside the specialist tobacconist, there can only be one visible price list.

Where prices are visible from outside the specialist tobacconist they must be presented in a consistent format using specific fonts and sizes, and can only include the:

• brand name of the product
• number of units in the package or the net weight of the product
• price of the product

For cigars, the information displayed can also include the country of origin and dimensions. For pipe tobacco, it can include the cut and type of tobacco used.

In Scotland, we propose to maintain current exemptions for specialist tobacconists and to allow the display of heated tobacco devices, herbal smoking products and their respective prices.

You will be asked if you agree or disagree with our proposal to allow the display of heated tobacco devices and herbal smoking products and their prices in specialist tobacconists in Scotland.

Display exemptions for bulk tobacconists

In Scotland, tobacco products, smoking-related products and their prices can be displayed in bulk tobacconists and duty-free shops, as long as they are not visible from outside the tobacco area of the shop.

A bulk tobacconist is a shop that does not sell cigarettes or hand-rolling tobacco in small units (see ‘Terms used in this consultation’). For example, at least 90% of a bulk tobacconist’s cigarette sales must be in pre-packaged quantities of 200 or more cigarettes in their original package and the remainder must be in pre-packed quantities of 100 or more cigarettes in their original package. Bulk tobacconists can be open to the public, including to children and young people, and may or may not sell other things.

In practice, some retailers that use the bulk tobacconist exemption, such as duty-free shops, also stock products aimed at children. These shops can attract large numbers of customers aged 17 and under. For example, an airport duty-free shop can display and sell super-size packs of toys, sweets and confectionery. While someone under the legal age of sale could also access specialist tobacconists, they are less of a concern because:

• the number of these retailers is small
• their products are typically not aimed at young people
• they are typically in areas with fewer young customers than duty-free shops

When the existing tobacco regulations were introduced, the government position was that:

• fewer people would see bulk products in settings like duty-free shops
• the bulk-size would be less appealing to children and adults trying to quit

Evidence suggests that a reduced price and increased volume of a product is more likely to attract purchases (Watt and others, 2022). We also now know that passengers travelling with children may be more likely to visit duty-free shops.

We previously assumed that if products were not exempt from display in these settings, customers would buy them elsewhere, such as outside the EU. However, international experience (for example, in New Zealand) shows that tobacco display restrictions can be implemented without these exemptions. This suggests they are not necessary for trade and business continuity as it is separate to the existing trade exemption (see ‘Display exemptions for trade premises’ section).

In Scotland, we propose to remove this exemption for tobacco products and smoking-related products and to not replicate it for any other products in scope of this consultation. This is because these products may be visibly accessible to children and young people.

You will be asked if you agree or disagree with our proposal to remove the existing display exemption for bulk tobacconists in Scotland.

Restricting the retail display of vaping and nicotine products across the UK

In all 4 nations of the UK there are currently no restrictions on the display of vaping products or non-medicinal nicotine products.

Given the rise in youth vaping, we propose that the display of vaping and nicotine products is restricted. We propose that the same allowances for temporary and incidental displays as we have proposed for most other products in scope of this consultation are applied to vaping and nicotine products across the UK.

This includes a requested temporary display taking place behind a sales counter. This would make the maximum visible area permitted for a requested temporary display or incidental display:

• 1.5 square metres in England, Wales and Northern Ireland
• 0.1 square metres in Scotland

We also propose that across the UK, a requested temporary display or an incidental display of vaping or nicotine products must not result in the display of:

• tobacco products (and smoking-related products in Scotland)
• cigarette papers
• heated and other tobacco-related devices
• herbal smoking products

This is to help prevent adults who are trying to quit smoking, or who have already quit, from seeing tobacco or tobacco associated products that could cause them to relapse to smoking.

You will be asked if you agree or disagree with our proposals:

• to restrict the display of vaping and nicotine products in shops across the UK
• on the requested temporary display of vaping and nicotine products

Display of prices of vaping and nicotine products across the UK

Current regulations restrict the display of prices for tobacco products across the UK. We propose to apply the same principles across the UK for the display of prices of:

• vaping products, including vape components and refill containers sold separately to the vape device
• nicotine products

We propose that the price lists for vaping and nicotine products are permitted to also include nicotine strength and ingredients. This will help consumers make informed purchases.

We propose to require separate price lists for:

• vaping and nicotine products
• tobacco products

These separate price lists apply to:

• permanently displayed price lists
• picture prices lists

This will help to clearly distinguish between the different products and recognise that tobacco products are associated with more health harms.

You will be asked if you agree or disagree with our proposal to restrict the display of vaping and nicotine product prices in shops across the UK.

Exemptions to display restrictions of vaping and nicotine products across the UK

Across the UK, it is permitted to display tobacco products and prices inside premises that are only accessible to people working in the tobacco trade. For example, tobacco products may be displayed inside a manufacturer’s premises when staff from a wholesaler come to buy tobacco products.

We propose to have this exemption across the UK to allow relevant trade premises to display vaping and nicotine products.

You will be asked if you agree or disagree with our proposal to permit the display of vaping and nicotine products in relevant trade premises across the UK.

Exemptions to display restrictions for vaping and nicotine products in pharmacies in England, Wales and Scotland

People interested in quitting smoking can visit a community pharmacy and buy a vaping or nicotine product to support them, if these products are available.

We welcome views on exemptions that allow a limited display of vaping and nicotine products inside community pharmacies in England, Wales and Scotland. For example, this could include locked transparent display units. This could help people to try to quit smoking, while restricting accessibility to young people.

However, we do not propose that the same exemption applies to vape shops, since they are not clinical settings.

You will be asked if you agree or disagree that pharmacies in England, Wales and Scotland are exempt so they can have limited displays of vaping and nicotine products.

Time allowed to implement new display restrictions

If and when new requirements are introduced, retailers will need time to update their shops to comply with the necessary changes.

There should be a long enough notice period before new requirements come into force. This period would start from when the details of the new requirements are made clear. We have not yet decided what is the best way to share those details, but for example it could be in a government response to this consultation or when regulations are presented to the relevant national Parliament.

We propose that a minimum notice period of 6 months would be enough. This would mean the display of products in scope would need to comply with any new requirements by the end of a 6-month implementation period. However, a longer or shorter notice period may be needed, and we welcome views on this.

This proposed implementation period of 6 months is less than the implementation period proposed for tobacco, vaping and nicotine product packaging and heated tobacco and vape device appearance changes. This is because we expect that retailers and other relevant businesses will be able to comply with display proposals quicker, since changes do not rely on wider changes to manufacturing processes and supply chains. We also expect that many retailers will already be familiar with the requirements, given their previous experience in complying with display restrictions for tobacco products.

There is also a strong public health case for implementing display proposals in a shorter timeframe. ASH’s survey of vape use among young people in Great Britain found 55% of children were aware of vape promotion in shops, the highest across various settings and media channels, and up from 37% in 2022.

You will be asked if you agree or disagree with our proposal that there should be a minimum of 6 months’ notice from when the detail of any new requirements is clear.

Consultation stage impact assessments

We have published consultation stage impact assessments alongside this consultation. These are UK-wide for all packaging proposals and proposals relating to devices. The consultation stage impact assessment for display is England only.

The Scottish Government has published a partial business and regulatory impact assessment (BRIA) on proposed measures for display of relevant products in Scotland.

The Welsh Government has published a consultation stage impact assessment for the proposed policy of restricting the display of relevant products in Wales, as it relates to powers that will be exercised by Welsh ministers.

The Department of Health in Northern Ireland has published a regulatory impact assessment on proposed measures to restrict the displays of relevant products in Northern Ireland, as this relates to powers that will be exercised by the Department of Health minister.

We are asking respondents to let us know about any measurable effects of the proposals in this consultation that we have not considered in our consultation stage impact assessments.

The data and evidence used in the consultation stage impact assessments reflects the best available at the time of their completion in October 2025 (May 2026 for the partial BRIA for Scotland, and June 2026 for the impact assessments for Wales and Northern Ireland).

Following this consultation, we will update the impact assessments as appropriate. This will include considering information we gather from consultation responses and any new data and evidence made available since the impact assessments were completed.

Consultation stage impact assessment for proposals on tobacco packaging

The consultation stage impact assessment sets out the expected benefits, costs, and affected stakeholders of the proposed regulation of:

• packaging and pack inserts for tobacco products (excluding cigarettes and hand tobacco)
• heated tobacco devices
• herbal smoking products
• cigarette papers

Where possible, we have estimated the financial benefits and costs. However, it has been difficult to do this for many of the benefits associated with the proposals. This means we do not currently have an overall financial assessment of benefits and costs that we think fairly reflects the impact on society.

The main benefits we identified for our proposals are health benefits associated with fewer products in scope being used.

We also expect the policy to result in costs, including to businesses. The main costs to businesses we expect are losses in profits to retailers, wholesalers and manufacturers. These losses are associated with:

• reduced sales of the products in scope
• costs of redesigning and repackaging products
• costs of producing pack inserts
• costs to retailers to reconfigure stock rooms
• cost for businesses to familiarise themselves with the policy
• training undertaken to comply with regulations

We took a conservative approach to estimating costs in the consultation stage impact assessment. Where it has not been possible to specify a financial cost or benefit at this stage, we will look to do so in the final stage impact assessment. There we can use data and evidence collected through the consultation and other research.

You will be asked if you have any evidence or data to inform the assumptions and estimates of the costs and benefits of the impact assessment.

Consultation stage impact assessment for proposals on heated tobacco device and vape appearance

The consultation stage impact assessment for restricting the appearance of heated tobacco and vape devices sets out the benefits and costs we expect to gain over time as a result of the proposed policy. It also sets out the stakeholders that we expect to be affected.

Where possible, we have estimated the financial benefits and costs. However, it has been difficult to do this for many of the benefits associated with the proposals. This means we do not currently have an overall financial assessment of benefits and costs that we think fairly reflects the impact on society.

The main benefits we identified for these proposals are the health benefits associated with reduced nicotine and tobacco consumption.

We also expect the proposed policy to result in costs, including to businesses. The main costs to businesses we expect are loss in profits associated with:

• reduced sales of the products in scope for retailers, wholesalers, and manufacturers
• costs to redesign the products
• costs to familiarise themselves and comply with the regulations

We took a conservative approach to estimating costs in the consultation stage impact assessment. Where it has not been possible to specify a financial cost or benefit at this stage, we will look to do so in the final stage impact assessment. There we can use data and evidence collected through the consultation and other research.

You will be asked if you have any evidence or data to inform the assumptions and estimates of the costs and benefits of the impact assessment.

Consultation stage impact assessment for proposals on vaping and nicotine product packaging and flavour descriptors

The consultation stage impact assessment for regulating packaging for vaping products and nicotine products sets out the benefits and costs we expect to gain over time as a result of the policy. It also sets out the stakeholders that we expect to be affected.

Where possible, we have estimated the financial benefits and costs. However, it has been difficult to do this for many of the benefits associated with the proposals. This means we do not currently have an overall financial assessment of benefits and costs that we think fairly reflects the impact on society.

The main benefits we identified for these proposals are health benefits associated with reduced nicotine consumption among children and young people.

We expect the proposed policy to result in costs, including to businesses. The main costs to businesses we expect are losses in profits associated with:

• reduced sales of the products in scope to retailers, wholesalers and manufacturers
• packaging redesign costs
• costs of producing leaflets for products not already subject to the requirements
• time to familiarise themselves and comply with the regulations

We took a conservative approach to estimating costs in the consultation stage impact assessment. Where it has not been possible to specify a financial cost or benefit at this stage, we will look to do so in the final stage impact assessment. There we can use data and evidence collected through the consultation and other research.

You will be asked if you have any evidence or data to inform the assumptions and estimates of the costs and benefits of the impact assessment.

Consultation stage impact assessment for proposals in relation to display

The consultation stage impact assessment sets out the benefits and costs that we expect to gain over time as a result of the proposed policy of restricting the display of:

• tobacco products
• cigarette papers
• heated and other tobacco devices
• herbal smoking products
• vaping and nicotine products

It also sets out the stakeholders that we expect to be affected.

While we are making UK-wide proposals for display restrictions, the estimates in the draft impact assessment are for England only. However, we have provided indicative estimates for the UK which are the estimates for England adjusted based on the relative size of the population in England compared to the whole of the UK.

The Scottish Government has also published a partial BRIA on proposed measures for display of relevant products in Scotland.

The Welsh Government has published a consultation stage impact assessment for the proposed policy of restricting the display of relevant products in Wales, as it relates to powers that will be exercised by Welsh ministers.

The Department of Health in Northern Ireland has published a regulatory impact assessment on proposed measures to restrict the displays of relevant products in Northern Ireland, as this relates to powers that will be exercised by the Department of Health minister.

Where possible, we have estimated the financial benefits and costs. However, it has been difficult to do this for many of the benefits associated with the proposals. This means we do not currently have an overall financial assessment of benefits and costs that we think fairly reflects the impact on society.

The main benefits we identified for these proposals are the health benefits associated with reduced tobacco and nicotine consumption.

We also expect the proposed policy to result in costs, including to businesses. The main costs to businesses we expect as a result of this proposed policy are losses in profits associated with:

• reduced sales of the products in scope for retailers, wholesalers and manufacturers
• time costs for additional restocking, price list maintenance and transaction time
• time costs to familiarise themselves and comply with the regulations

We took a conservative approach to estimating costs in the consultation stage impact assessment. Where it has not been possible to specify a financial cost or benefit at this stage, we will look to do so in the final stage impact assessment. There we can use data and evidence collected through the consultation and other research.

You will be asked if you have any evidence or data to inform the assumptions and estimates of the costs and benefits of the impact assessment.

How to respond

You can respond to the consultation through the online survey.

The consultation is open for 12 weeks and will close at 11.59pm on 2 October 2026. If you respond after this date, we will not consider your response.

A version of this consultation in Welsh language is available.

We invite views on the above proposals as well as alternative suggestions, including views about policy design and/or the best way to implement policies. If you have alternative suggestions, please summarise:

• how your suggestions would better achieve the aims of the policy in question
• how your suggestions would work in practice
• any implementation issues that we should be aware of

You can upload a document to support your response at the end of the survey.

Do not upload information that could identify an individual or member of the public. Do not provide personal data when responding to free text survey questions. We will remove any personal data before we analyse these responses and we will not consider them in the outcome.

If you have any issues completing the online survey, contact tobaccoandvapesconsultations@dhsc.gov.uk. Do not include any personal information in your email.

Next steps

Ensuring a joined-up approach

We will publish a response after the consultation period.

The proposals included in this consultation:

• form part of a broader regulatory programme on tobacco control and tackling youth vaping being developed by the UK government and the devolved governments
• are intended to complement and reinforce one another, and wider proposals covered in other consultations, to help improve public health

For example, proposed changes to display and packaging requirements would help reduce the visibility and appeal of the products in scope. Proposals to introduce pack inserts in tobacco products beyond cigarettes and hand-rolling tobacco would ensure that people using those products also receive evidence-based health information and encouragement to quit.

We are taking a comprehensive approach, recognising that the greatest benefit will come from the combined implementation of these policies. On this basis, the governments of all 4 nations intend to develop the proposed policies as a package of measures that will reduce smoking uptake and prevent youth vaping across the UK. This means that subject to consultation, broader engagement and other factors, the governments of the UK nations intend to pass legislation relating to a range of proposals in stages during the course of the UK Parliament (by 2029).

Where appropriate, we will build on the information received as part of our recent call for evidence. This includes proposals, subject to analysis and consultation, relating to:

• a new licensing scheme for the retail sale of tobacco, vaping and nicotine products
• a new product registration scheme
• potential further restrictions on heated tobacco devices and vapes
• potential further restrictions on the substances, ingredients, emissions and levels of nicotine allowed in vaping and nicotine products

Reducing burden on businesses

We are aware of the need to introduce potential policies in a way that limits the burden placed on businesses as far as possible. This includes aligning implementation timeframes for policies that will affect the same or similar sectors around the same time.

The governments of all 4 nations will carefully consider the sequencing of when any changes to legislation will come into force. This includes considering:

• the responses received to this consultation and any subsequent consultations
• wider factors, such as potential cumulative effects on businesses

Consultation questions

About you

Questions for everyone

In what capacity are you responding to this survey?

• An individual sharing my personal views and experiences
• An individual sharing my professional views
• On behalf of an organisation

Do you have any direct or indirect links to, or receive funding from, the tobacco industry?

• Yes
• No

Questions for people sharing their personal or professional views

What is your age? (Optional)

• Under 13
• 13 to 15
• 16 to 24
• 25 to 34
• 35 to 44
• 45 to 54
• 55 to 64
• 65 to 74
• 75 to 84
• 85 or above
• Prefer not to say

What is your sex? (Optional)

• Female
• Male
• Prefer not to say

Is the gender you identify with the same as your sex registered at birth? (Optional)

• Yes
• No
• Prefer not to say

What is your ethnic group? (Optional)

• White - includes British, Northern Irish, Irish, Gypsy, Irish Traveller, Roma or any other White background
• Mixed or Multiple ethnic groups - includes White and Black Caribbean, White and Black African, White and Asian or any other Mixed or Multiple background
• Asian or Asian British - includes Indian, Pakistani, Bangladeshi, Chinese or any other Asian background
• Black, Black British, Caribbean or African - includes Black British, Caribbean, African or any other Black background
• Other ethnic group - includes Arab or any other ethnic group
• Prefer not to say

Do you have any physical or mental health conditions or illnesses lasting or expected to last 12 months or more? (Optional)

• Yes
• No
• Prefer not to say

If you answered ‘Yes’, do any of your conditions or illnesses reduce your ability to carry out day-to-day activities? (Optional)

• Yes, a lot
• Yes, a little
• Not at all
• Prefer not to say

Where do you live in the UK? (Optional)

• England
• Scotland
• Wales
• Northern Ireland
• I live outside the UK
• Prefer not to say

If you answered ‘England’, in which area of England do you live? (Optional)

• North East England
• North West England
• Yorkshire and the Humber
• East of England
• East Midlands
• West Midlands
• London
• South East England
• South West England
• Prefer not to say

Which of the following best describes your smoking habits (including heated tobacco use)?

• I currently smoke at least once a week
• I smoke occasionally (less than once a week)
• I used to smoke but have now quit
• I have never smoked
• Prefer not to say

Which of the following best describes your vaping habits?

• I currently vape at least once a week
• I vape occasionally (less than once a week)
• I used to vape but have now quit
• I have never vaped
• Prefer not to say

Which of the following best describes your usage of other nicotine products? For example, nicotine pouches.

• I currently use nicotine products at least once a week
• I use nicotine products occasionally (less than once a week)
• I used to use nicotine products but have now quit
• I have never used nicotine products
• Prefer not to say

Questions for people responding on behalf of an organisation

What is the size of your organisation? (Optional)

• Small (0 to 49 employees)
• Medium (50 to 249 employees)
• Large (250 or more employees)

Where does your organisation operate or provide services? Select all that apply. (Optional)         

• England
• Wales
• Scotland
• Northern Ireland
• The whole of the UK
• Outside the UK

Please provide the name of the organisation you are responding on behalf of. (Optional)

Questions for people sharing their professional views and those responding on behalf of an organisation

What is the main area or focus of your work? (Optional)

• Academic
• Advocacy
• Distribution
• Education
• Emergency services
• Enforcement agencies
• Healthcare
• Hospitality
• Justice system
• Legal
• Local government
• National government
• Production or manufacturing
• Retail
• Social care
• Wholesale
• Other, please specify

Do you work for, or are you providing views on behalf of, any of the following? Select all that apply.

• Manufacturer or producer of a tobacco product
• Manufacturer or producer of a vape or nicotine product
• Importer of a tobacco product
• Importer of a vape or nicotine product
• Distributor of a tobacco product
• Distributor of a vape or nicotine product
• Retailer of a tobacco product
• Retailer of a vape or nicotine product

Or:

• None of the above

Tobacco packaging

Proposals for further plain packaging requirements

We propose to introduce plain packaging requirements for:

• all tobacco products (including but not limited to cigars, cigarillos, pipe tobacco, waterpipe tobacco, smokeless and heated tobacco)
• heated tobacco devices
• herbal smoking products
• cigarette papers

These requirements would broadly align with existing requirements for cigarettes and hand-rolling tobacco.

An overview of the existing requirements for cigarettes and hand-rolling tobacco is set out below.

Colour

Pantone 448C (drab dark brown) colour with a matt finish.

Branding

Brand name permitted once each on front, top and bottom of pack. It must:

• be in a centred position
• be in Pantone Cool Gray 2 C
• be in Helvetica font size 14 point or less
• have only the first letter capitalised

The variant name must follow the same requirements other than to be size 10 point or less and positioned immediately below the brand name.

No promotional images or logos, additional colours or markings are allowed.

Shape

Specified packaging shapes. For cigarettes this is cuboid only and for hand-rolling tobacco this is cuboid, cylindrical or pouch.

Packaging materials

Specified packaging materials. For cigarettes this is carton or soft material only.

Minimum size

20 pack for cigarettes, 30 grams for hand-rolling tobacco.

Some products may require specific plain packaging requirements, for example hand-rolling tobacco pouches are permitted to have a re-sealable sticker and cigarette packets have a lining. If we proceed with the policy, we will engage further on the details of the plain packaging measures for specific products.

Do you agree or disagree with our proposal to introduce the plain packaging requirements outlined above for all tobacco products? This does not include cigarettes and hand-rolling tobacco which already have strict plain packaging requirements.

• Agree
• Neither agree nor disagree
• Disagree
• Don’t know

Do you agree or disagree with our proposal to introduce the plain packaging requirements outlined above for heated tobacco devices?

• Agree
• Neither agree nor disagree
• Disagree
• Don’t know

Do you agree or disagree with our proposal to introduce the plain packaging requirements outlined above for herbal smoking products?

• Agree
• Neither agree nor disagree
• Disagree
• Don’t know

Do you agree or disagree with our proposal to introduce the plain packaging requirements outlined above for cigarette papers?

• Agree
• Neither agree nor disagree
• Disagree
• Don’t know

Please explain your answers. This could include, for example, sharing your views on which tobacco products plain packaging requirements should or should not be introduced for, or specific elements of our proposals which you agree or disagree with. (Optional, maximum 600 words. Please do not include any personal information in your response.)

Text health warnings on the packaging of heated tobacco devices and cigarette papers

We propose to introduce text health warnings on the packaging of heated tobacco devices and cigarette papers. All tobacco products and herbal smoking products already have these warnings. The wording of warnings will reflect the harms of using each product.

Do you agree or disagree with our proposal to introduce text health warnings on the packaging of heated tobacco devices?

• Agree
• Neither agree nor disagree
• Disagree
• Don’t know

Do you agree or disagree with our proposal to introduce text health warnings on the packaging of cigarette papers?

• Agree
• Neither agree nor disagree
• Disagree
• Don’t know

Please explain your answers. (Optional, maximum 600 words. Please do not include any personal information in your response.)

Picture health warnings on the packaging of more products and devices

All smoked tobacco products currently require picture health warnings, excluding individually wrapped cigars and cigarillos, and packs of large cigars that weigh more than 3 grams each. These products only require text warnings on their packaging.

Smokeless tobacco products, heated tobacco devices and herbal smoking products currently do not have picture health warnings.

We propose to introduce picture warnings on the packaging of:

• all tobacco products (including all cigars and cigarillos, smokeless tobacco and heated tobacco)
• heated tobacco devices
• herbal smoking products

We do not propose including picture warnings for cigarette papers due to the typically smaller size of the packaging.

Do you agree or disagree with our proposal to introduce picture health warnings on the packaging of all tobacco products? This builds on requirements that are already in place for most tobacco products.

• Agree
• Neither agree nor disagree
• Disagree
• Don’t know

Do you agree or disagree with our proposal to introduce picture health warnings on the packaging of heated tobacco devices?

• Agree
• Neither agree nor disagree
• Disagree
• Don’t know

Do you agree or disagree with our proposal to introduce picture health warnings on the packaging of herbal smoking products?

• Agree
• Neither agree nor disagree
• Disagree
• Don’t know

Do you agree or disagree that picture health warnings should not be required on the packaging of cigarette papers? We do not propose including picture health warnings on cigarette papers due to the small size of the packaging.

• Agree
• Neither agree nor disagree
• Disagree
• Don’t know

Please explain your answers. This could include, for example, sharing your views on which tobacco products health warning requirements should or should not be introduced for. (Optional, maximum 600 words. Please do not include any personal information in your response.)

Pack inserts in packaging for all tobacco and herbal smoking products and heated tobacco devices

Quit themed pack inserts will soon be introduced for cigarettes and hand-rolling tobacco following previous consultation. We propose to also include quit themed pack inserts in the packaging of:

• all tobacco products (including products such as such as cigars, cigarillos, pipe tobacco, waterpipe tobacco and smokeless and heated tobacco)
• heated tobacco devices
• herbal smoking products

We do not propose including pack inserts in cigarette papers due to the small size of the packaging.

Do you agree or disagree with our proposal to introduce pack inserts for all tobacco products? This does not include cigarettes and hand-rolling tobacco which we are addressing separately to this consultation.

• Agree
• Neither agree nor disagree
• Disagree
• Don’t know

Do you agree or disagree with our proposal to introduce pack inserts for heated tobacco devices?

• Agree
• Neither agree nor disagree
• Disagree
• Don’t know

Do you agree or disagree with our proposal to introduce pack inserts for herbal smoking products?

• Agree
• Neither agree nor disagree
• Disagree
• Don’t know

Do you agree or disagree that pack inserts should not be required in the packaging of cigarette papers? We do not propose including pack inserts for cigarette papers due to the small size of the packaging.

• Agree
• Neither agree nor disagree
• Disagree
• Don’t know

Please explain your answers. This could include, for example, sharing comments on specific tobacco products for which you do or do not think pack inserts should apply. (Optional, maximum 600 words. Please do not include any personal information in your response.)

Time allowed to implement new packaging requirements

If and when new requirements are introduced, manufacturers will need time to update their packaging to comply. Retailers may also need time to sell old stock that does not comply with new law.

There should be a long enough notice period before new requirements come into force. This period would start from when the details of the new requirements are made clear. We have not yet decided what is the best way to share those details, but it could be, for example, in a government response to this consultation or when regulations are presented to the relevant national Parliament.

We propose that a minimum notice period of 12 months would be enough. This would mean all products covered by our tobacco packaging proposals would need to comply with any new requirements by the end of a 12-month implementation period. However, a longer or shorter notice period may be needed, and we welcome views on this.

Do you agree or disagree with our proposed implementation period of no less than 12 months (from when the detail of any new requirements is clear)?

• Agree
• Neither agree nor disagree
• Disagree
• Don’t know

Please explain your answer. This could include, for example, sharing comments on whether the proposed implementation period should be shorter or longer, or on implications that the proposed implementation period could have for manufacturers, retailers or other groups. Please reference any evidence that you have considered to support your response. (Optional, maximum 600 words. Please do not include any personal information in your response.)

Heated tobacco device appearance

Restricting the colour and finish of heated tobacco devices

We propose to restrict the colour of heated tobacco devices to Pantone 448C (drab dark brown) with an opaque matt finish. Pantone 448C is the same colour as cigarette and hand-rolling tobacco packaging. 

Restricting the colour of the device in this way would also prevent certain aesthetic features on the device, such as the presence of cosmetic lights.

Do you agree or disagree with our proposal to restrict the colour of heated tobacco devices to Pantone 448C (drab dark brown) with an opaque matt finish?

• Agree
• Neither agree nor disagree
• Disagree
• Don’t know

Do you agree or disagree that heated tobacco devices should be banned from having cosmetic lights? This will not apply to functional lights, like those that indicate charge level.

• Agree
• Neither agree nor disagree
• Disagree
• Don’t know

Please explain your answers. This could include, for example, sharing comments on whether restricting heated tobacco devices to an alternative colour may be more effective, or whether technical exemptions are required. (Optional, maximum 600 words. Please do not include any personal information in your response.) 

Restricting branding, imagery and artwork on heated tobacco devices

We propose to ban heated tobacco devices from having images or artwork on them, except for any image that is a regulatory requirement, such as required warnings. 

We also propose to limit branding to a single brand name, which would be subject to a set font, size and colour on the device.

Do you agree or disagree with our proposal to restrict all branding, imagery and artwork on heated tobacco devices?

• Agree
• Neither agree nor disagree
• Disagree
• Don’t know

Please explain your answer. This could include, for example, sharing comments on which of the proposed restrictions you do or do not think should apply. (Optional, maximum 600 words. Please do not include any personal information in your response.) 

Restricting digital screens on heated tobacco devices

We propose that digital screens on heated tobacco devices are restricted to only display safety and status information, such as battery levels.

Do you agree or disagree that digital screens on heated tobacco devices should be restricted to only the display of safety and status information such as battery level, and be greyscale in colour (black, white and grey only)?

• Agree
• Neither agree nor disagree
• Disagree
• Don’t know

Please explain your answer. This could include, for example, sharing comments if you think there should be any exemptions to this proposal. (Optional, maximum 600 words. Please do not include any personal information in your response.) 

Stopping heated tobacco devices imitating other products

We propose to limit the potential appeal of heated tobacco devices by stopping them from looking like other products, such as drink bottles and game devices. 

This proposal aligns with the restrictions we are proposing for vape devices. It will ensure that heated tobacco devices do not appear more attractive than vapes.

Do you agree or disagree that heated tobacco devices should not be permitted to mimic the design of other products and items? The objective of this proposal is to limit the appeal or attractiveness of heated tobacco devices.

• Agree
• Neither agree nor disagree
• Disagree
• Don’t know

Please explain your answer. This could include, for example, sharing comments if you think there should be any exemptions to this proposal. (Optional, maximum 600 words. Please do not include any personal information in your response.)

Time allowed to implement new device requirements

If and when new requirements are introduced, manufacturers will need time to ensure their devices are compliant. Retailers may also need time to sell old stock that does not comply with new law.

There should be a long enough notice period before new requirements come into force. This period would start from when the details of the new requirements are made clear. We have not yet decided what is the best way to share those details, but it could be, for example, in a government response to this consultation or when regulations are presented to the relevant national Parliament.

We propose that a minimum notice period of 12 months would be enough. This would mean heated tobacco devices would need to comply with any new requirements by the end of a 12-month implementation period. However, a longer or shorter notice period may be needed, and we welcome views on this.

Do you agree or disagree with our proposed implementation period of no less than 12 months (from when the detail of any new requirements is clear)?

• Agree
• Neither agree nor disagree
• Disagree
• Don’t know

Please explain your answer. This could include, for example, sharing comments on whether the proposed implementation period should be shorter or longer, or on implications that the proposed implementation period could have for manufacturers, retailers or other groups. Please reference any evidence that you have considered to support your response. (Optional, maximum 600 words. Please do not include any personal information in your response.)

Vaping and nicotine product packaging and flavour descriptors

Definition of vaping products

Throughout this section, we refer to ‘vaping products’. This includes vapes, as well as other vape components and refill containers sold separately from the device.

Restricting the colour on packaging for all vaping and nicotine products

We propose that the packaging for vaping and nicotine products should be white.

Do you agree or disagree with our proposal to restrict the colour of packaging of all vaping products to white?

• Agree
• Neither agree nor disagree
• Disagree
• Don’t know

Do you agree or disagree with our proposal to restrict the colour of packaging of all nicotine products to white?

• Agree
• Neither agree nor disagree
• Disagree
• Don’t know

Please explain your answers. (Optional, maximum 600 words. Please do not include any personal information in your response.)

Restricting imagery, branding, text and other promotional features

We propose that the packaging for all vaping and nicotine products should not include imagery, and that all text on the packaging, including any branding or brand names, should be in a standard colour, font and typeface. 

There should be no other promotional features on the outside or inside of packs or attached to the packaging, such as links to social media accounts or any feature that suggests a financial benefit, such as vouchers or discounts.

We recognise that there may be a case to allow packaging of vaping products to display a picture of the product contained inside (for example, a mouthpiece). We welcome views on whether any limited exemptions may be appropriate in the free text box. 

Do you agree or disagree with our proposal to introduce the restrictions to imagery, branding, text and promotional features outlined above for the packaging of all vaping products?

• Agree
• Neither agree nor disagree
• Disagree
• Don’t know

Do you agree or disagree with our proposal to introduce the restrictions to imagery, branding, text and promotional features outlined above for the packaging of all nicotine products?

• Agree
• Neither agree nor disagree
• Disagree
• Don’t know

Please explain your answers. This could include, for example, your views on whether there should be any exemptions or further restrictions. You may also indicate any elements of the proposal you disagree with and why, or elements you feel could be further strengthened. (Optional, maximum 600 words. Please do not include any personal information in your response.)

 Restricting the shape, materials and safety features of packaging for all vaping and nicotine products

We propose that packaging used for vaping and nicotine products should use uniform shapes. For example, the packaging for devices or coils should use a similar shape, such as a rectangular cuboid, depending on their dimensions.

We also propose that manufacturers should not use materials that enhance a product’s appeal, such as:

• glossy plastics
• holographic foils
• other tactile features, for example fuzzy or velvety materials

Do you agree or disagree with our proposal that packaging for all vaping products should have uniform shapes, and that there should be restrictions on materials and finishes that can enhance appeal?

• Agree
• Neither agree nor disagree
• Disagree
• Don’t know

Do you agree or disagree with our proposal that packaging for all nicotine products should have uniform shapes, and that there should be restrictions on materials and finishes that can enhance appeal?

• Agree
• Neither agree nor disagree
• Disagree
• Don’t know

Vapes are already required to have child-resistant and tamper-evident packaging. We propose to introduce this requirement for all vaping and nicotine products.

Do you agree or disagree with our proposal that packaging for all vaping products should be both child-resistant and tamper-evident?

• Agree
• Neither agree nor disagree
• Disagree
• Don’t know

Do you agree or disagree with our proposal that packaging for all nicotine products should be both child-resistant and tamper-evident?

• Agree
• Neither agree nor disagree
• Disagree
• Don’t know

Please explain your answers. This could include, for example, indicating any elements of the proposal that you disagree with and why, if there are elements that you feel could be further strengthened or other features that should be included. (Optional, maximum 600 words. Please do not include any personal information in your response.)

Restricting flavour descriptions on vaping and nicotine products packaging

Single lead flavour

We propose to restrict flavour descriptors on the packaging for vaping and nicotine products to a single, recognised flavour name, like apple or strawberry. This would include restricting hyphenated or combined flavour names, such as blueberry-apple.

Do you agree or disagree with our proposal to restrict flavour descriptors on the packaging of all vaping products to a single lead flavour?

• Agree
• Neither agree nor disagree
• Disagree
• Don’t know

Do you agree or disagree with our proposal to restrict flavour descriptors on the packaging of all nicotine products to a single lead flavour?

• Agree
• Neither agree nor disagree
• Disagree
• Don’t know

Concept, sensory, food and drink categories

We also propose restricting any concept or sensory words from being used to describe a flavour. 

A concept name refers to any flavour name that does not directly describe a recognisable food, drink or natural flavour. Instead, the word conveys a mood, an idea, a brand or even a number or codename, rather than describing an actual flavour. This could include flavour names such as:

• ‘Unicorn Dream’
• ‘DC100’

A sensory name refers to a recognisable taste, smell or sensation experienced when using a vape or nicotine product, such as ‘Mint Blast’.

Do you agree or disagree with our proposal that concept and sensory flavour descriptors should be restricted on the packaging of all vaping products?

• Agree
• Neither agree nor disagree
• Disagree
• Don’t know

Do you agree or disagree with our proposal that concept and sensory flavour descriptors should be restricted on the packaging of all nicotine products?

• Agree
• Neither agree nor disagree
• Disagree
• Don’t know

We also propose restricting descriptor names of certain food and drink categories that appeal to children and young people. This includes flavours like:

• confectionery and sweets (such as ‘Chocolate’, ‘Candy’ and ‘Bubblegum’)
• desserts and cakes (such as ‘Brownie’ and ‘Cheesecake’)
• alcohol and other drinks (such as ‘Cola’)

Do you agree or disagree with our proposal that confectionery, sweets, dessert and cake name descriptors should be restricted on the packaging of all vaping products?

• Agree
• Neither agree nor disagree
• Disagree
• Don’t know

Do you agree or disagree with our proposal that confectionery, sweets, dessert and cake name descriptors should be restricted on the packaging of all nicotine products?

• Agree
• Neither agree nor disagree
• Disagree
• Don’t know

Do you agree or disagree with our proposal that alcohol and drink name descriptors should be restricted on the packaging of all vaping products?

• Agree
• Neither agree nor disagree
• Disagree
• Don’t know

Do you agree or disagree with our proposal that alcohol and drink name descriptors should be restricted on the packaging of all nicotine products?

• Agree
• Neither agree nor disagree
• Disagree
• Don’t know

Please explain your answers. This could include, for example, your views on any elements of the proposal that you disagree with and why, or any flavour names that you believe should or should not be restricted. You may also wish to comment on whether there should be any differences in how these restrictions apply to vaping and nicotine products. (Optional, maximum 600 words. Please do not include any personal information in your response.)

Product information on and inside vaping and nicotine products packaging

We propose that the packaging of all vaping and nicotine products should have:

• a full list of ingredients, including flavour agents
• expiration details
• an age restriction symbol, for example a crossed-out 18 symbol
• a standardised display of nicotine strength, for example in milligrams, millilitres or as a percentage
• nicotine delivery per puff or pouch, where relevant

We also propose that relevant products should have a nicotine warning label on the front and back of the packaging. For example, this warning could say ‘This product contains nicotine which is a highly addictive substance’. Packaging should also have clear instructions on appropriate waste disposal.

Where applicable, we propose that certain products have an instruction leaflet to inform users of any appropriate warnings and the adverse effects of nicotine.

Do you agree or disagree with our proposal to require the consumer information listed above on and inside the packaging of all vaping products?

• Agree
• Neither agree nor disagree
• Disagree
• Don’t know

Do you agree or disagree with our proposal to require the consumer information listed above on and inside the packaging of all nicotine products?

• Agree
• Neither agree nor disagree
• Disagree
• Don’t know

Please explain your answers. This could include, for example, sharing comments on any elements of the proposal that you disagree with and why, if there are areas that you feel could be further strengthened or areas that have been missed and should be included. (Optional, maximum 600 words. Please do not include any personal information in your response.)

Time allowed to implement new packaging requirements

If and when new requirements are introduced, manufacturers will need time to update their packaging to be compliant. Retailers may also need time to sell old stock that does not comply with the new law.

There should be a long enough notice period before new requirements come into force. This period would start from when the details of the new requirements are made clear. We have not yet decided what is the best way to share those details, but it could be, for example, in a government response to this consultation or when regulations are presented to the relevant national Parliament.

We propose a minimum notice period of 12 months would be enough. This would mean all products in scope of our vaping and nicotine product packaging proposals would need to comply with any new regulatory requirements by the end of a 12 month implementation period. However, a longer or shorter notice period may be needed, and we welcome views on this.

Do you agree or disagree with our proposed implementation period of no less than 12 months (from when the detail of any new requirements is clear)?

• Agree
• Neither agree nor disagree
• Disagree
• Don’t know

Please explain your answer. This could include, for example, sharing comments on whether the proposed implementation period should be shorter or longer, or on implications that the proposed implementation period could have for manufacturers, retailers or other groups. Please reference any evidence that you have considered to support your response. (Optional, maximum 600 words. Please do not include any personal information in your response.)

Vape device appearance

Restricting the colour and finish of vapes

We propose restricting the colour of vape devices, including all visible parts, to:

• white, black or grey, with only one of those colours per device
• a matt finish
• no variation in shades or opacity

Do you agree or disagree with our proposal to limit the colour of a vaping device (including all visible parts) to white, black or grey with a matt finish?

• Agree
• Neither agree nor disagree
• Disagree
• Don’t know

Do you agree or disagree that vape devices should be banned from having cosmetic lights? This would not apply to functional lights, such as those that indicate charge level.

• Agree
• Neither agree nor disagree
• Disagree
• Don’t know

Please explain your answer. This could include, for example, sharing comments on whether you think no restrictions should apply, if you think only a subset of the proposed colours should be allowed or if you think alternative colours should be allowed. Equally, you may want to highlight technical exemptions that should be considered. (Optional, maximum 600 words. Please do not include any personal information in your response.)

Restricting branding, imagery, and artwork on vapes

We propose that vapes are banned from having images or artwork, except for where these may be a legal requirement, such as warnings. 

We also propose that branding should be limited to a single brand name, which would be subject to a set font, size and colour on the device. This aligns with the restrictions we are proposing for heated tobacco devices.

Do you agree or disagree with our proposal to restrict all branding, imagery and artwork on vapes?

• Agree
• Neither agree nor disagree
• Disagree
• Don’t know

Please explain your answer. This could include, for example, sharing comments on whether you think none or only some of the proposed restrictions should apply. (Optional, maximum 600 words. Please do not include any personal information in your response.)

Restricting the digital screens on vapes

We propose that digital screens on vapes are prohibited, except for screens which display safety and status information such as battery and liquid levels.

Do you agree or disagree that digital screens on vapes should be restricted to only the display of safety and status information such as battery level, and be greyscale in colour (black, white and grey only)? This would not include lights that indicate status information, such as when the device is being recharged.

• Agree
• Neither agree nor disagree
• Disagree
• Don’t know

Please explain your answer. This could include, for example, sharing comments if you think there should be any exemptions to this proposal. (Optional, maximum 600 words. Please do not include any personal information in your response.)

Stopping vapes imitating other products

Currently vapes can and do copy the design of other products, such as highlighter pens, refillable water bottles and game devices. 

We propose to limit the potential appeal of vapes by stopping them from looking like other products.

Do you agree or disagree that vapes should not be permitted to mimic the design of other products and items? The objective of this proposal is to limit the appeal or attractiveness of vapes.

• Agree
• Neither agree nor disagree
• Disagree
• Don’t know

Please explain your answer. This could include, for example, sharing comments if you think there should be any exemptions to this proposal. (Optional, maximum 600 words. Please do not include any personal information in your response.)

Time allowed to implement new device requirements

If and when new requirements are introduced, manufacturers will need time to ensure their devices are compliant. Retailers may also need time to sell old stock that does not comply with new law.

There should be a long enough notice period before new requirements come into force. This period would start from when the details of the new requirements are made clear. We have not yet decided what is the best way to share those details, but it could be, for example, in a government response to this consultation or when regulations are presented to the relevant national Parliament.

We propose that a minimum notice period of 12 months would be enough. This would mean all vapes would need to comply with any new regulatory requirements by the end of a 12 month implementation period. However, a longer or shorter notice period may be needed, and we welcome views on this.

Do you agree or disagree with our proposed implementation period of no less than 12 months (from when the detail of any new requirements is clear)?

• Agree
• Neither agree nor disagree
• Disagree
• Don’t know

Please explain your answer. This could include, for example, sharing comments on whether the proposed implementation period should be shorter or longer, or on implications that the proposed implementation period could have for manufacturers, retailers or other groups. Please reference any evidence that you have considered to support your response. (Optional, maximum 600 words. Please do not include any personal information in your response.)

Retail display

Requested temporary and incidental displays in England, Wales and Northern Ireland

Under existing legislation, tobacco products cannot be displayed inside or outside most shops across the UK. However, tobacco products can be shown to a customer following a request. The request must be by a person who is of the legal age of sale in England, Wales and Northern Ireland. We call this a ‘requested temporary display’ in this consultation.

Requested temporary displays enable informed purchasing decisions. As a result of a requested temporary display, other people nearby may also incidentally see these products. Current legislation in England, Wales and Northern Ireland also makes allowances for:

• restocking
• staff training
• pricing
• display unit maintenance

We call this ‘incidental display’ in this consultation.

Restricting the retail display of cigarette papers, heated and other tobacco-related devices and herbal smoking products in England, Wales and Northern Ireland

Tobacco products

We propose that the requested temporary display of all tobacco products should only be allowed from behind a sales counter, and not another location within a retail setting.

Do you agree or disagree with our proposal to introduce a legal requirement that the requested temporary display of all tobacco products must take place from behind a sales counter?

• Agree
• Neither agree nor disagree
• Disagree
• Don’t know

Cigarette papers, heated and other tobacco-related devices and herbal smoking products

We propose that most of the restrictions and allowances that apply to the display of tobacco products should apply to cigarette papers, heated and other tobacco-related devices and herbal smoking products too. 

This includes:

• restricting the display of these products outside of all retail settings and inside the majority of retail settings
• providing allowances enabling display unit restocking, maintenance, pricing, staff training and requested temporary displays
• permitting the same maximum visible areas (1.5 square meters)

We also propose that the requested temporary display of these products should only be allowed from behind a sales counter, and not another location within a retail setting in the same way as we are proposing to make this a legal requirement for tobacco products.

Do you agree or disagree with our proposal to restrict the display of cigarette papers? This would include the requirement that their requested temporary display must take place from behind a sales counter.

• Agree
• Neither agree nor disagree
• Disagree
• Don’t know

Do you agree or disagree with our proposal to restrict the display of heated and other tobacco-related devices? This would include the requirement that their requested temporary display must take place from behind a sales counter.

• Agree
• Neither agree nor disagree
• Disagree
• Don’t know

Do you agree or disagree with our proposal to restrict the display of herbal smoking products? This would include the requirement that their requested temporary display must take place from behind a sales counter.

• Agree
• Neither agree nor disagree
• Disagree
• Don’t know

Please explain your answers. This could include, for example, sharing comments on why you think our proposed restrictions should or should not apply to certain types of products. (Optional, maximum 600 words. Please do not include any personal information in your response.)

Retail display of prices for cigarette papers, heated and other tobacco-related devices and herbal smoking products in England, Wales and Northern Ireland

Retailers can display prices for tobacco products in 3 formats:

• a single price list that can be permanently on display at each point of sale, but must be text-only and subject to size and font requirements
• a picture price list that can include product images and can only be shown in response to a request by a person who is of the legal age of sale
• small price labels that can be placed on the covered shelf or on the display unit where the product is kept, pending sale

We propose to apply the same price display principles to:

• cigarette papers
• all tobacco-related devices, including heated tobacco devices
• herbal smoking products

Do you agree or disagree with our proposal to restrict the display of prices for cigarette papers?

• Agree
• Neither agree nor disagree
• Disagree
• Don’t know

Do you agree or disagree with our proposal to restrict the display of prices for all tobacco-related devices including heated tobacco devices?

• Agree
• Neither agree nor disagree
• Disagree
• Don’t know

Do you agree or disagree with our proposal to restrict the display of prices for herbal smoking products?

• Agree
• Neither agree nor disagree
• Disagree
• Don’t know

Please explain your answers. This could include, for example, sharing comments on why you think our proposed restrictions should or should not apply to certain types of products. (Optional, maximum 600 words. Please do not include any personal information in your response.)

Exemptions to display restrictions for tobacco products, cigarette papers, tobacco-related devices and herbal smoking products in England, Wales and Northern Ireland

Across the UK, there are exemptions that allow for tobacco products and their prices to be on display inside certain premises. These premises include:

• relevant trade premises (those that are only accessible to people that work in the tobacco trade)
• specialist tobacconists
• bulk tobacconists (including duty-free tobacco areas)

In England, Wales and Northern Ireland, we propose to maintain current exemptions for tobacco products for relevant trade premises and specialist tobacconists. 

If and when additional retail display restrictions are brought in, we also propose that relevant trade premises and specialist tobacconists will continue to be allowed to display the following products, and their prices:

• cigarette papers
• heated and other tobacco-related devices
• herbal smoking products

We propose to remove the bulk tobacconist exemption for tobacco products and to not replicate it for any other products in scope of this consultation, since it presents a situation where products may be visibly accessible to the public, including children and young people.

Display exemptions for trade premises

Do you agree or disagree with our proposal to allow for the display of cigarette papers and their prices in relevant trade premises?

• Agree
• Neither agree nor disagree
• Disagree
• Don’t know

Do you agree or disagree with our proposal to allow for the display of tobacco-related devices, including heated tobacco devices, and their prices in relevant trade premises?

• Agree
• Neither agree nor disagree
• Disagree
• Don’t know

Do you agree or disagree with our proposal to allow for the display of herbal smoking products and their prices in relevant trade premises?

• Agree
• Neither agree nor disagree
• Disagree
• Don’t know

Please explain your answers. This could include, for example, why you think certain exemptions should or should not be considered as well as any additional exemptions you think are necessary. (Optional, maximum 600 words. Please do not include any personal information in your response.)

Display exemptions for specialist tobacconists

Do you agree or disagree with our proposal to allow for the display of cigarette papers and their prices inside specialist tobacconists?

• Agree
• Neither agree nor disagree
• Disagree
• Don’t know

Do you agree or disagree with our proposal to allow for the display of tobacco-related devices, including heated tobacco devices, and their prices inside specialist tobacconists?

• Agree
• Neither agree nor disagree
• Disagree
• Don’t know

Do you agree or disagree with our proposal to allow for the display of herbal smoking products and their prices inside specialist tobacconists?

• Agree
• Neither agree nor disagree
• Disagree
• Don’t know

Please explain your answers. This could include, for example, sharing comments on why you think proposed exemptions should or should not be considered as well as any additional exemptions you think are necessary. (Optional, maximum 600 words. Please do not include any personal information in your response.)

Display exemptions for bulk tobacconists

We propose to remove the bulk tobacconist exemption for tobacco products and their prices and to not replicate it for any other products in scope of this consultation. Keeping the exemption would mean children and young people may still be able to see these products.

Do you agree or disagree with our proposal to remove and not replicate this exemption for all products in scope of this consultation?

• Agree
• Neither agree nor disagree
• Disagree
• Don’t know

Please explain your answer. Where possible please include any information on any costs to bulk tobacconists associated with removing this exemption for tobacco products, including the number of businesses likely to be affected. (Optional, maximum 600 words. Please do not include any personal information in your response.)

Requested temporary and incidental display in Scotland

Tobacco products and smoking-related products can be shown to a customer following a request, we call this a requested temporary display. Requested temporary displays enable informed purchasing decisions.

As a result of a requested temporary display, other people nearby may also incidentally see these products. Current legislation in Scotland also makes allowances to enable restocking, staff training, pricing and display unit maintenance where necessary. We call this an incidental display.

Retail display of tobacco products, smoking-related products, heated tobacco devices and herbal smoking products in Scotland

Tobacco products and smoking-related products

We propose that the requested temporary display of tobacco products and smoking-related products should only be allowed from behind a sales counter, and not another location within a retail setting.

Do you agree or disagree with our proposal to introduce a legal requirement that the requested temporary display of tobacco products and smoking-related products must take place from behind a sales counter?

• Agree
• Neither agree nor disagree
• Disagree
• Don’t know

Heated tobacco devices and herbal smoking products

We propose to ban the retail display of heated tobacco devices and herbal smoking products in Scotland. As part of this, we propose that the existing restrictions and allowances that apply to the retail display of tobacco products and smoking-related products should apply to these products too. 

This includes:

• restricting the display of products in places where they are offered for sale
• allowances for incidental displays and requested temporary displays
• permitting the same maximum visible areas (0.1 square metres)

We also propose that the requested temporary display of these products should only be allowed from behind a sales counter, and not another location within a retail setting. This is the same way as we are proposing to make this a legal requirement for tobacco products and smoking-related products.

To make it more practical for the retailers of waterpipes like shisha to comply with regulations due to their size, we are also proposing an expansion of the maximum permitted area of display as a result of a requested temporary display or incidental display for waterpipes.

Do you agree or disagree with our proposal to restrict the display of heated tobacco devices? This would include the requirement that their requested temporary display must take place from behind a sales counter.

• Agree
• Neither agree nor disagree
• Disagree
• Don’t know

Do you agree or disagree with our proposal to restrict the display of herbal smoking products? This would include the requirement that their requested temporary display must take place from behind a sales counter.

• Agree
• Neither agree nor disagree
• Disagree
• Don’t know

Do you agree or disagree that the maximum visible area of display unit permitted as a result of a requested or incidental display of herbal smoking products or heated tobacco devices in Scotland should be 0.1 square metres?

• Agree
• Neither agree nor disagree
• Disagree
• Don’t know

Waterpipes

We propose to expand the maximum visible area of display unit permitted as result of a requested or incidental display for waterpipes like shisha, due to their size.

If we expand the area of display, what size do you think it should be increased to?

• 0.5 square metres
• 1 square metre
• 1.5 square metres
• Don’t know
• Other (please specify)

Smoking-related products

The current list of ‘smoking-related products’, as defined by the Tobacco and Primary Medical Services (Scotland) Act 2010, includes:

• cigarette papers
• cigarette tubes
• filters that do not form part of a tobacco product or smoking-related product
• apparatus for making cigarettes
• cigarette holders
• pipes for smoking tobacco products (which would include waterpipes like shisha)

Do you agree or disagree that the current list of smoking-related products reflects all tobacco-related devices used for smoking currently available to purchase?

• Agree
• Neither agree nor disagree
• Disagree
• Don’t know

Please explain your answers. This could include, for example, sharing comments on why you think our proposed restrictions should or should not apply to certain types of products, or comments in relation to the proposed maximum visible area of display unit permitted as a result of a requested or incidental display for waterpipes, like shisha. (Optional, maximum 600 words. Please do not include any personal information in your response.)

Display of prices for heated tobacco devices and herbal smoking products in Scotland

Current regulations in Scotland restrict the display of prices for tobacco products and smoking-related products in places where tobacco products are offered for sale. Prices must be presented in a consistent format using specific fonts and can only include the:

• brand name of the product
• number of units in the package or the net weight of the product
• price of the product

For cigars, the information displayed can also include the country of origin and dimensions. For pipe tobacco, it can include the cut and type of tobacco used. 

Retailers can display prices for tobacco products and smoking-related products in 3 formats:

• a single price list, which can be permanently displayed at each point of sale but must be text-only and meet size and font requirements
• a picture price list, which can include product images and can only be shown in response to a request by a customer
• small price labels, which can be placed on the covered shelf or display unit where the product is kept, pending sale

We propose to apply the same principles for the display of prices to:

• heated tobacco devices
• herbal smoking products

Do you agree or disagree with our proposal to restrict the display of prices of heated tobacco devices?

• Agree
• Neither agree nor disagree
• Disagree
• Don’t know

Do you agree or disagree with our proposal to restrict the display of prices for herbal smoking products?

• Agree
• Neither agree nor disagree
• Disagree
• Don’t know

Please explain your answers. This could include, for example, sharing comments on why you think our proposed restrictions should or should not apply to certain types of products. (Optional, maximum 600 words. Please do not include any personal information in your response.)

Exemptions to display regulations for tobacco products, smoking-related products, heated tobacco devices and herbal smoking products in Scotland

In Scotland, there are exemptions that allow tobacco products, smoking-related products and their respective prices to be on display inside certain premises. These premises include:

• trade tobacconists
• specialist tobacconists
• bulk tobacconists and duty-free tobacco areas

We propose to maintain current exemptions for tobacco products and smoking-related products for relevant trade premises and specialist tobacconists. If and when additional retail display restrictions are brought in, we also propose that relevant trade premises and specialist tobacconists will continue to be allowed to display the following products, and their prices:

• heated tobacco devices
• herbal smoking products

We propose to remove the bulk tobacconist exemption for tobacco products and smoking-related products and to not replicate it for any other products in scope of this consultation, because these products may be visibly accessible to the public, including children and young people.

Display exemptions for trade premises

Do you agree or disagree with our proposal to allow for the display of heated tobacco devices and prices in relevant trade premises in Scotland?

• Agree
• Neither agree nor disagree
• Disagree
• Don’t know

Do you agree or disagree with our proposal to allow for the display of herbal smoking products and prices in relevant trade premises in Scotland?

• Agree
• Neither agree nor disagree
• Disagree
• Don’t know

Please explain your answers. If you have comments on business exemptions to our display proposals, please include them here. This could include, for example, why you think certain exemptions should or should not be considered as well as any additional exemptions you think are necessary. (Optional, maximum 600 words. Please do not include any personal information in your response.)

Display exemptions for specialist tobacconists

Do you agree or disagree with our proposal to allow for the display of heated tobacco devices and prices in specialist tobacconists in Scotland?

• Agree
• Neither agree nor disagree
• Disagree
• Don’t know

Do you agree or disagree with our proposal to allow for the display of herbal smoking products and prices inside specialist tobacconists in Scotland?

• Agree
• Neither agree nor disagree
• Disagree
• Don’t know

Please explain your answers. This could include, for example, sharing comments on why you think proposed exemptions should or should not be considered as well as any additional exemptions you think are necessary. (Optional, maximum 600 words. Please do not include any personal information in your response.)

Display exemptions for bulk tobacconists

Do you agree or disagree with our proposal to remove and not replicate the bulk tobacconist exemption for all products in scope of this consultation?

• Agree
• Neither agree nor disagree
• Disagree
• Don’t know

Please explain your answer. Where possible please include any information on any costs to bulk tobacconists associated with removing this exemption for tobacco products. (Optional, maximum 600 words. Please do not include any personal information in your response.)

Definition of vaping products

Throughout this section, we refer to ‘vaping products’. This includes vapes, as well as other vape components and refill containers sold separately from the device.

Restricting the display of vaping and nicotine products across the UK

We propose that the display of vaping products and nicotine products is restricted. 

We propose that the same allowances for temporary and incidental displays as we have proposed for most other products within scope of this consultation are applied across the UK. This includes a temporary requested display taking place behind a sales counter. This would make the maximum visible area permitted for a requested temporary display or incidental display:

• 1.5 square metres in England, Wales and Northern Ireland
• 0.1 square metres in Scotland

We also propose that a requested temporary or incidental display of vaping or nicotine products must not result in the display of:

• tobacco products (and smoking-related products in Scotland)
• cigarette papers
• heated and other tobacco-related devices
• herbal smoking products

Do you agree or disagree with our proposal to restrict the display of vaping products? This would include the requirement that their requested temporary display must take place from behind a sales counter.

• Agree
• Neither agree nor disagree
• Disagree
• Don’t know

Do you agree or disagree with our proposal to restrict the display of nicotine products? This would include the requirement that their requested temporary display must take place from behind a sales counter.

• Agree
• Neither agree nor disagree
• Disagree
• Don’t know

Do you agree or disagree that the requested temporary or incidental display of vaping and nicotine products should not result in the display of tobacco products (and smoking-related products in Scotland), cigarette papers, heated and other tobacco devices or herbal smoking products?

• Agree
• Neither agree nor disagree
• Disagree
• Don’t know

Please explain your answers. This could include, for example, sharing comments on why you think our proposed restrictions should or should not apply to certain types of products. (Optional, maximum 600 words. Please do not include any personal information in your response.)

Display of prices of vaping and nicotine products across the UK

Across the UK, we propose to apply the same principles for the display of prices of tobacco products to:

• vaping products
• nicotine products

We propose that the price lists for vaping and nicotine products are permitted to also include nicotine strength and ingredients. This will help consumers make informed purchases.

We propose that separate price lists must be used for vaping and nicotine products and for tobacco products, for both permanently displayed price lists and picture prices lists, given vaping and nicotine products carry lower levels of harm than tobacco products.

Do you agree or disagree with our proposal to restrict the display of prices for vaping products, and allow for additional information on nicotine strength and ingredients?

• Agree
• Neither agree nor disagree
• Disagree
• Don’t know

Do you agree or disagree with our proposal to restrict the display of prices for nicotine products and allow for additional information on nicotine strength and ingredients?

• Agree
• Neither agree nor disagree
• Disagree
• Don’t know

Please explain your answers. This could include, for example, sharing comments on why you think our proposed restrictions should or should not apply to certain types of products. (Optional, maximum 600 words. Please do not include any personal information in your response.)

Exemptions to display restrictions of vaping and nicotine products across the UK

Across the UK, it is permitted to display tobacco products inside premises that are only accessible to people working in the tobacco trade as long as this is not visible to the public from the outside. We propose to have this exemption to allow for relevant trade premises to display vaping products and nicotine products.

Do you agree or disagree with our proposal to allow for the display of vaping products in relevant trade premises?

• Agree
• Neither agree nor disagree
• Disagree
• Don’t know

Do you agree or disagree with our proposal to allow for the display of nicotine products in relevant trade premises?

• Agree
• Neither agree nor disagree
• Disagree
• Don’t know

Please explain your answers. If you have comments on business exemptions to our display proposals, please include them here. This could include, for example, why you think certain exemptions should or should not be considered as well as any additional exemptions you think are necessary. (Optional, maximum 600 words. Please do not include any personal information in your response.)

Exemptions to display restrictions for vaping and nicotine products in pharmacies in England, Wales and Scotland

We welcome views on exemptions that allow a limited display of vaping and nicotine products inside community pharmacies in England, Wales and Scotland. For example, this could include locked transparent display units. This could help people to try to quit smoking, while restricting accessibility to young people.

However, we do not propose that the same exemption applies to vape shops, since they are not clinical settings.

Do you agree or disagree that community pharmacies in England, Wales and Scotland should be permitted an exemption to allow for the limited display of vaping and nicotine products?

• Agree
• Neither agree nor disagree
• Disagree
• Don’t know

Please explain your answer. This could include, for example, why you think certain exemptions should or should not be considered as well as any additional exemptions you think are necessary. (Optional, maximum 600 words. Please do not include any personal information in your response.)

Time allowed to implement all new display restrictions

If and when new requirements are introduced, retailers will need time to update their shops to comply with the necessary changes.

There should be a long enough notice period before new requirements come into force. This period would start from when the details of the new requirements are made clear. We have not yet decided what is the best way to share those details, but it could be, for example, in a government response to this consultation or when regulations are presented to the relevant national Parliament.

We propose that a minimum notice period of 6 months would be enough. This would mean the display of products in scope would need to comply with any new requirements by the end of a 6-month implementation period. However, a longer or shorter notice period may be needed, and we welcome views on this.

Do you agree with our proposal that there should be a minimum of 6 months’ notice (from when the detail if any new requirements is clear)?

• Agree
• Neither agree nor disagree
• Disagree
• Don’t know

Please explain your answer. This could include, for example, sharing comments on whether the proposed implementation period should be shorter or longer, or on implications that the proposed implementation period could have for manufacturers, retailers or other groups. Please reference any evidence that you have taken into account to support your response. (Optional, maximum 600 words. Please do not include any personal information in your response.)

Consultation stage impact assessments

We have published consultation stage impact assessments alongside this consultation. The Scottish government, Welsh government and the Department of Health in Northern Ireland have also published impact assessments for proposals relating to retail display.

We would like to hear about any measurable impacts we have not considered in these initial impact assessments.

The data and evidence used in the impact assessments reflects the best available at the time of their completion in October 2025 (May 2026 for the impact assessment for Scotland and June 2026 for the impact assessments for Wales and Northern Ireland). Following this consultation, we will update the impact assessments as appropriate, including in consideration of information we gather through responses and any new data and evidence made available since their publication.

For each impact assessment, you will be asked the following questions. You can respond to as many questions and impact assessments as you want to.

For the retail display impact assessment, you can also respond about the impact assessments for Scotland, Wales and Northern Ireland. Please make it clear which one you’re responding to.

If you have any evidence or data to inform the assumptions or estimates in the consultation stage impact assessment, please enter it in the relevant free text box.

Please do not include any personal information in your response.

Provide any evidence to inform our estimates in the impact assessment of the benefits of the proposed policy. For example, information on the impact that options will have on the number of people using products in scope and/or health benefits associated with any reduction in usage. (Optional, maximum 600 words)

Provide any evidence to inform our estimates in the impact assessment of the costs of the proposed policy. For example, information on profit margins for manufacturers, wholesalers and retailers, and/or costs and process of product redesign. (Optional, maximum 600 words)

Specify any stakeholders that may be impacted by the proposed policy and/or costs and benefits that we have not identified in the impact assessment. (Optional, maximum 600 words)

Outline any potential unintended consequences of the proposed policy that we have not identified in the impact assessment. (Optional, maximum 600 words)

Provide any other comments to inform our assumptions or analysis in the impact assessment. (Optional, maximum 600 words)

File upload

If you would like to upload a document to support your submission, you will be able to do so. Please do not upload information that could identify you or another member of the public.

References

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Privacy notice

Data controller

DHSC is the data controller.

What personal data we collect

When you respond to the consultation online, we will collect information on:

• whether you are responding as an individual member of the public or on behalf of an organisation
• what sector you work in
• what the main focus of your work is
• the nature of your organisation (if you are responding on behalf of an organisation)
• where your organisation operates (if you are responding on behalf of an organisation)
• the size of your organisation (if you are responding on behalf of an organisation)
• whether you have any direct or indirect links to, or receive funding from, the tobacco industry
• your IP address

We also ask for some personal information, which we will collect if you choose to respond. This includes:

• the name of your organisation, if applicable
• your age within an age band
• where you live
• your sex
• your ethnicity
• your health status

Please do not include any other personal information in your responses to free text questions in this survey.

How we use your data

We collect your information as part of the consultation process:

• to inform policy decisions
• for statistical purposes, such as to understand how representative the results are and whether views and experiences vary across organisations and demographics
• to reduce the likelihood inauthentic accounts or networks will respond to the consultation

Legal basis for processing personal data

We are processing personal data under article 6(1)(e) of the UK General Data Protection Regulation (GDPR), which means the processing is necessary to perform a task in the public interest or for our official functions, and the task or function has a clear basis in law.

In this case, we are asking the public for their views to answer a range of questions about tobacco, vaping and nicotine products to support government objectives.

We are processing special category data under article 9(2)(g) of the UK GDPR, which means the processing is necessary for reasons of substantial public interest, specifically for statutory and government purposes.

Data processors and other recipients of personal data

This consultation is hosted on an online platform owned by SocialOptic, which is a contracted supplier of DHSC. SocialOptic will delete any personal data in line with the retention and disposal periods outlined in this privacy notice, or earlier if instructed to do so by DHSC.

Any personal data collected may also be shared with future suppliers (who will be under contract) engaged on this project.

International data transfers and storage locations

Storage of data by SocialOptic is provided on secure servers located in the UK.

Storage of data by DHSC is provided by secure computing infrastructure on servers located in the European Economic Area. DHSC platforms are subject to extensive security protections and encryption measures.

Who your information may be shared with

Responses to the consultation may be seen by:

• DHSC officials such as policy, data analysts, economists and others working on tobacco and vapes policy
• officials from other government departments including the devolved administrations of Scotland, Wales and Northern Ireland, where appropriate
• DHSC’s third-party contracted supplier SocialOptic, which is responsible for hosting the online consultation

We may also share anonymised data with other government departments.

How long we keep your information

We will hold your information for up to one year after the consultation closes. Anonymised information may be kept longer.

We will ask SocialOptic to securely delete the information held on their system one year after the consultation closes.

How we keep your data secure

DHSC uses a range of technical, organisational and administrative security measures to protect any information we hold in our record from:

• loss
• misuse
• unauthorised access
• disclosure
• alteration
• destruction

We have written procedures and policies that are regularly audited and reviewed at a senior level.

SocialOptic is Cyber Essentials certified. This is a government-backed scheme that helps organisations protect themselves against the most common cyber-attacks.

Your rights

As a data subject, by law you have a number of rights, and processing your data does not take away or reduce these rights under the EU GDPR (2016/679) and the UK Data Protection Act 2018.

You have the right to:

• get copies of any information about you that is used
• get information about you corrected if you think it’s inaccurate
• limit how the information is used, for example you can ask for it to be restricted if you think inaccurate information is being used
• object to the information being used - however this is not an absolute right and continued use of the information may be necessary, and you will be advised if this is the case
• get information deleted - this is not an absolute right and continued use of the information may be necessary, and you will be advised if this is the case

Comments or complaints

We will always try to respond to concerns or queries that you have about your data.

If you are unhappy about how your information is being used, or if you want to complain about how your data is used as part of this consultation, you should email data_protection@dhsc.gov.uk or write to:

Data Protection Officer
1st Floor North
39 Victoria Street
London
SW1H 0EU

If you have contacted the DHSC Data Protection Officer and are not satisfied with their response, you can complain to the Information Commissioner’s Office (ICO). You can find out how to contact them at the ICO website. Their postal address is:

Information Commissioner’s Office
Wycliffe House
Water Lane
Wilmslow
Cheshire
SK9 5AF

Automated decision making or profiling

No decision will be made about you, which has a significant impact on you, solely based on automated decision making (where a decision is taken about you using an electronic system without human involvement).

Changes to this privacy notice

We keep this privacy notice under review and will update it if necessary. All updated versions will be marked by a change note on the consultation page.