Tobacco and Vapes Bill

If the Government are serious about reducing smoking rates, they need to execute a twin-track strategy of pursuing stronger zero-tolerance enforcement action against those criminals trading illicit tobacco along with prioritising more investment in targeted education programmes, youth access prevention, smoking support services and campaigns to educate smokers on less harmful alternative nicotine products.

Implementing a generational ban will be unenforceable. It will only drive more consumers into the hands of the criminally controlled illicit market. It makes absolutely no sense at all. Further, it will deprive the Treasury of much-needed revenue, which will be redirected instead into the pockets of organised criminals. Smoking rates will not decline any further, given the exceptionally low price point for a packet of illicit cigarettes—apparently between £3 and £6 for a 20-cigarette pack—and for hand-rolling tobacco, which is between £5 and £8 for 50 grams. In contrast, a packet of 20 cigarettes in a shop apparently costs about £17. One can see immediately the incentive for purchasing black-market cigarettes.

My final point by way of introduction is that this Government purport to be a keen proponent of adherence to the provisions of international law, but, as reported in the Sunday papers, it is now clear that a generational ban would not be permissible in the European Union. The ability to impose this ban is therefore a Brexit benefit—something that noble Lords will perhaps not hear from the Minister. More importantly, it would be unlawful to introduce it in Northern Ireland.

There is now clear and careful legal opinion, from the former Advocate-General for Northern Ireland, John Larkin King’s Counsel, that a generational ban would be contrary to the provisions of the Windsor Framework. I ask the Minister, in respect of the applicability of this measure across the United Kingdom, whether the Government accept that that is the case, and if not, why not? Are they content to proceed in the face of contrary legal evidence and take their chances before the courts of Northern Ireland? In the event that the law is found incompatible by the courts of Northern Ireland, do they intend to disapply these measures in Northern Ireland, thus creating an imbalance whereby 21 year-olds in Northern Ireland are able to buy cigarettes but their compatriots in Wales, Scotland and England are not?

By way of further background to these amendments, noble Lords will note that the method by which my amendments would take effect is by raising the age of purchase from 18 to 21. This would be much more practicable and manageable and a more straightforward way for retailers to enforce a stricter regime on the purchase of tobacco than a generational ban, which would be complicated, impractical, unworkable and unenforceable. Furthermore, the Government’s own modelling in preparation for the last tobacco and vapes Bill showed that raising the age to 21 would have an identical effect on UK smoking rates as the introduction of a generational ban. Moreover, the Government’s own modelling in preparation for the last tobacco and vapes Bill showed that increasing the age of purchase from 18 to 21 would result in exactly the same outcome as a generational ban, achieving 0% smoking rates among 14 to 30 year-olds by 2050.

One further aspect that I wish to touch on is the impact of the proposed generational ban on retailers. For retailers, especially small independent ones, the introduction of the generational ban presents a number of very profound challenges. Crimes against retailers are already at epidemic levels. Many independent shopkeepers are scared of the impact that a generational ban will have on their businesses and the safety of their staff. There is no getting away from the fact that the weight of responsibility for enforcing the ban falls entirely on the shoulders of retailers, who will have to navigate a new legal age threshold that will change every year and with every customer. Already, the British Retail Consortium records that violent acts of abuse and intimidation towards Britain’s retailers have leapt to an unprecedented 2,000 incidents a day, up from 1,300 incidents a day in 2024. This is a staggering increase. Retailers have consistently tried to engage with the Government throughout the passage of the Bill, but the Government have ignored that audience and their concerns at every stage.

Shopkeepers could not be clearer: the end result of the implementation of a generational ban is that they will close their businesses, with all the loss of jobs and convenience that that will entail. Tobacco and vape sales make up 20% of the annual revenues of many of these shops. With the inevitable escalation of further violence and intimidation towards themselves and their staff, it does not make economic sense in the long term to carry on. We also know that organised criminal gangs are keen to dominate the illicit tobacco market, as they have been in Australia, and, as I mentioned earlier in my remarks, have sought revenge on those who are not participating in their illegal schemes.

This Government tell us that they wish to introduce ID cards. If that is right, would it not be better—if they insist on persisting with a generational ban—to await the introduction of those measures prior to introducing a measure such as this, to avoid the absurd situation when you have potentially an 18 year-old shopkeeper having to ask a 46 year-old to prove that they are in fact 46 and not 45, with no obvious basis on which to ask for that and with all the attendant risks of aggression and difficulty that that would give rise to?

For all those reasons, I beg to move Amendment 1 and commend all my amendments in the group.

By contrast, raising the age to 21 would achieve the same public health goals, by the Government’s own figures, without punishing retailers or driving trade into the hands of criminals, as so well explained earlier. The truth is that the generational ban, combined with already very high excise duties, would hand a huge advantage to organised crime.

We can reach the Government’s public health objective without punishing shopkeepers, small producers and law-abiding adults. Raising the legal age to 21 is proportionate, workable and enforceable. It is a policy rooted not in ideology but in common sense. So I, too, urge the Minister to review the generational ban and look at the amendment. It offers a practical path to the same goal—a smoke-free generation—without the confusion, complexity and unintended consequences on businesses.