Are youth vaping rates rising? Industry reacts to the tobacco control bill
According to Affinity Health, while vaping may contain fewer known toxins than cigarettes, it is not safe, especially for teens, pregnant women, and people with chronic conditions.
Image: Supplied
While a recent study by the University of Cape Town (UCT) has sounded the alarm about the alarming levels of vape usage among teens, the industry has sought to reassure that they are taking the matter seriously, but are also concerned how vaping is viewed in the Tobacco Products & Electronic Delivery Systems Control Bill.
The Health Department has previously said that, due to tobacco use remaining one of the leading causes of preventable death and disease worldwide, 'the government has proposed legislation on Tobacco Products and Electronic Delivery Systems as part of its efforts to enforce strong tobacco control policies in South Africa'.
The department explained that the Bill aims not only to protect current and future generations from the harms of tobacco but also to promote health equity and sustainable development.
'Therefore, the department calls upon all sectors, including health professionals, educators, policymakers, and communities, to unite in support of effective tobacco control.'
Recently, vaping has been in the spotlight, after a UCT study sounded the alarm on vaping rates among South African teens, urging the swift enactment of the Tobacco Products & Electronic Delivery Systems Control Bill to curb what they warn could become a full-blown national epidemic.
Affinity Health said that the difference is that cigarettes burn tobacco and release over 7,000 chemicals, including tar, carbon monoxide, and arsenic, many of which are toxic and carcinogenic. In contrast, vapes heat a liquid (called e-liquid or vape juice) that often contains nicotine, propylene glycol, glycerine, flavourings, and other chemicals.
The study found that nearly 17% of surveyed learners currently use vapes: among them, 38.3% vape daily, over 50% of current users vape more than four days per week, and 88% of current vapers reported using products containing nicotine.
The study surveyed 25,000 pupils across 52 fee-paying high schools nationwide to assess the prevalence, drivers, and addictive behaviours linked to vaping among teenagers.
The researchers uncovered startling trends using a mixed-methods approach that combined quantitative and qualitative data.
'In South Africa, where tobacco control has made strides, the rapid rise in vaping among adolescents is a new public health challenge. As a multidisciplinary team, whose work intersects with public health matters, we wanted to quantify the burden. We were further driven by global alarm bells, like the World Health Organization's 2023 warning about e-cigarette promotion targeting the youth, as well as local gaps in knowledge,' said co-author Samantha Filby.
Affinity Health added that both vaping and smoking carry serious health risks.
'While vaping may contain fewer known toxins than cigarettes, it is not safe, especially for teens, pregnant women, and people with chronic conditions. And with so many unknown long-term effects still being researched, prevention and education are key.'
On Wednesday this week, the Parliamentary Portfolio Committee on Health heard a presentation from Asanda Gcoyi, CEO of the Vapour Products Association of South Africa (VPASA), where she delivered the industry's oral submission regarding the proposed Tobacco Control Bill.
Gcoyi stated that their overall concern with the Bill is how smokers are not at the centre of the policy proposal, and that there is a lack of differentiation in how vaping is treated.
By suggesting comparable measurements, she claimed that they were the same as tobacco, despite scientific evidence showing that they fall into two distinct risk categories.
She also highlighted that harm is not equal, and that the 'harm is harm' mantra has no place in public health policy.
'It is quite clear that we are worlds apart in terms of agreeing on the science. We need to find a middle ground, and in finding a middle ground, Parliament ought to commission a credible independent science review to balance the available evidence for policymaking purposes.'
Gcoyi said that VPASA itself is also concerned about youth access to vaping, and that had they not been, then they wouldn't have started initiatives as early as 2021.
Gcoyi informed the committee that there is a lot of proxy buying occurring, and that she witnessed it herself, how adults are buying on behalf of a minor.
'We've spent a lot of time developing the guidelines, and you can take some of the guidelines. We need stronger controls and penalties for people who do not abide by the guidelines.
'We are willing to subject ourselves, as an industry, to a framework that is controlled, predictable, and that will ensure that we safeguard young people, but also ensure that the people who need these vaping products have access to them.'
Gcoyi also wanted to dispel the notion that banning disposable vapes will eradicate youth vaping.
'It is without any basis in fact. Disposables are important for the South African market, particularly at this point…
'I think an important part I want to highlight is that flavours are not the root cause of youth vaping… Evidence supports a regulated flavour-inclusive vaping market.'
Founder and Director of Quit Like Sweden (QLS), Suely Castro, an organisation which seeks to tout alternatives to traditional tobacco control and highlight methods that support adult smokers in transitioning to safer alternatives, has also weighed in.
Castro said the UCT study findings highlight an important issue that requires urgent and nuanced regulatory attention, and that QLS fully acknowledges the legitimate concerns surrounding underage vaping.
'However, as Sweden's success shows, this does not mean rejecting harm reduction altogether. Instead, it's about creating smart policies that both restrict youth access and enable adult smokers to quit smoking and switch to safer alternatives.
'QLS supports progressive, evidence-based regulation that accomplishes two things simultaneously: protects youth and empowers adults. Sweden's model, based on what we refer to as the 'three As': Accessibility, Acceptability, and Affordability, ensures safer alternatives are available for adult smokers while maintaining tight control over youth access.
'Such an approach avoids the pitfalls of prohibition while addressing both public health and economic concerns.'
Castro said that South Africa's Bill should be built on a foundation of risk-proportionate regulation, which looks at a differentiated regulation for products based on relative risk; support for adult smokers by ensuring safer alternatives remain acceptable, accessible, and affordable; and targeted youth protections such as guidelines on descriptors (avoiding overly childish language), enforcement of age restriction, and responsible advertising and marketing.
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Programmes that helped adolescent parents complete their education, including childcare support and flexible schooling, could recover millions in lost earnings potential. The report cites Nacosa's successful peer education and remedial teaching initiatives. GBV Prevention Investments: Community-based programmes such as Stepping Stones and Sonke Gender Justice's One Man Can campaign have proven effective at changing harmful gender norms. The report called for scaling these interventions alongside clinical services for survivors. The report's conclusion was unequivocal: 'Business as usual is not going to work. Different approaches are needed to generate change.' It challenged policymakers to view SRHR not as an expense, but as an investment with measurable economic returns. 'Understanding the cost of inaction helps to re-evaluate current approaches,' the report stated. 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