Comprehensive Tobacco Comprehensive Tobacco Comprehensive Tobacco Comprehensive Tobacco Control LegislationControl LegislationControl LegislationControl Legislation

: key features : : key features : : key features : : key features : characteristics characteristics characteristics characteristics ---- structuresstructuresstructuresstructures

Position of Tobacco in Position of Tobacco in Position of Tobacco in Position of Tobacco in Constitutional Scheme of Constitutional Scheme of Constitutional Scheme of Constitutional Scheme of

thingsthingsthingsthingsQuestion: Is there a right to consume tobacco

Considerthefact:

� Istobaccoafood?

� Istobaccoausefuldrug?

� Istobaccoanutritiousconcoction?

� Istobaccoinanywayusefultoahumanbeing

� Istobaccoaneutralconsumerproduct?

� Whyisitmarketed/sold/traded?

So can someone claim it as a right to consume tobacco –Technically NO

Question: Would restricting use of tobacco violate right of life or liberty or even trading?

Courts have held otherwise – There is no constitutional/fundamental right to consume tobacco –restricting tobacco does not violates anyone’s right

Key Ingredients of a Key Ingredients of a Key Ingredients of a Key Ingredients of a ““““Good LawGood LawGood LawGood Law””””

1. ProperlyDraftedlegislation

2. Balancebetweenprimarylegislationand

delegatedlegislation

3. GoodCONNECTbetweenthelegislation,the

ConstitutionandotherLaws

4. Easeandclarityofenforcementofthelegislation

5. SimpleandFastProcedureofProsecution

Challenges in Tobacco Challenges in Tobacco Challenges in Tobacco Challenges in Tobacco Control LegislationsControl LegislationsControl LegislationsControl Legislations

�Interferenceby“TobaccoIndustry”

�CampaignofMisinformation&Misguidance

�PerceptionofTobaccoasa“EconomicContributor”

byasectionofgovernment

�Dilutionoflegislationatdraftingstageitself(The

standardtobaccoindustrystrategy)

�LowPriorityLegislation

�LackofCapacity

Example of challenges withinExample of challenges withinExample of challenges withinExample of challenges within

DEPARTMENTOFCOMMERCE

RAJYA�SABHA

STARRED�QUESTION�NO�390�

ANSWERED�ON�23.08.2006�

UNFAIR�TREATMENT�TO�VIRGINIA�TOBACCO�AT�WTO�NEGOTIATIONS .

390.�SHRI�V.�HANUMANTHA�RAO�Will�the�Minister�of�COMMERCE�AND�INDUSTRY�be�pleased�to�state:-

(a)�whether�Government�have�noted�that�cash�crops�like�Virginia�tobacco�are�not�receiving�fair�treatment�during�WTO�negotiations;�

(b)�whether�it�is�also�a�fact�that�Free�Trade�Agreements�between India�and�neighbouring�countries�is�harming�Indian�tobacco�farmers’ interest;�

(c)�in�what�way�will�Government�bring�about�equity�and�fairness�in�international�trade�policies�to�help�farmers�of�Andhra�Pradesh�and�Karnataka;�and�

(d)�the�steps�proposed�to�reduce�such�aspects�of�FTAs which�harm�Indian�farmers?�

ANSWER

MINISTER�OF�COMMERCE�AND�INDUSTRY�

(�SHRI�KAMAL�NATH�)�

(a):�In�the�WTO�negotiations,�steps�are�being�taken�to�address�the�structural�distortions�in�agricultural�trade�caused�due�to�subsidization�and�protection�of�agricultural�products,�including�cash�crops�like�Virginia�tobacco.�

(b)�to�(d):�Under�India’s�Regional�Trade�Arrangements�(RTAs),�tariff�concessions�on�imports�into�India,�with�duty�free�access�subject�to�fulfillment of�value�addition�criteria,�on�tobacco�have�been�offered�only�under�the�Indo-Sri�Lanka�Free�Trade�Agreement�(FTA).�Sri�Lanka�has�retained�tobacco�in�its�negative�list�of�imports.�The�Government�has�requested�Sri�Lanka�to�provide�parity�with�India’s�tariff�concessions�on�tobacco.�Matters�relating�to�exports�to�India�by�Sri�Lanka�of�cigarettes�manufactured�with�imported�tobacco�have�also�already�been�raised�by�the�Government�with�Sri�Lanka�under�the�review of�the�Indo-Sri�Lanka�FTA.�

…………………..etc�……………………….

Key Ingredients Key Ingredients Key Ingredients Key Ingredients –––– Well Well Well Well Defined ObjectivesDefined ObjectivesDefined ObjectivesDefined Objectives

IMPORTANCE OF THE PREAMBLE:-Principles and Purpose

Most laws contain a general statement of the purpose and/or principles of

the law.

The purpose of a law provides the framework within which the law will be

implemented and interpreted.

In the context of a legal challenge to a law or its regulations, this

framework can play a critical role. Therefore, words should be carefully

chosen and should clearly and accurately reflect the scope of issues that

the government intends to regulate.

Good Example: FCTC – TC Legislation of India

From the FCTC PreambleFrom the FCTC PreambleFrom the FCTC PreambleFrom the FCTC Preamble

Preamble of FCTCPreamble of FCTCPreamble of FCTCPreamble of FCTCThePartiestothisConvention,

Determinedtogiveprioritytotheirrighttoprotectpublichealth,

Recognizing thatthespreadofthetobaccoepidemicisaglobalproblemwithseriousconsequencesforpublichealththatcallsforthewidest possibleinternationalcooperationandtheparticipationofallcountries inaneffective,appropriateandcomprehensiveinternationalresponse,

Reflecting theconcernoftheinternationalcommunityaboutthedevastatingworldwidehealth,social,economicandenvironmentalconsequencesoftobaccoconsumptionandexposuretotobaccosmoke,

Seriously concernedabouttheincreaseintheworldwideconsumptionandproductionofcigarettesandothertobaccoproducts,particularlyindevelopingcountries,aswellasabouttheburdenthisplacesonfamilies,onthepoor,andonnationalhealthsystems,

…………….etc…………….

The elements of comprehensive The elements of comprehensive The elements of comprehensive The elements of comprehensive TC legislationTC legislationTC legislationTC legislation

� Institutions�and�mechanisms. Legislationshouldcreate,empowerandfundanauthoritytoimplementanddirectthelegislation.

� Public�education. Largepubliceducationcampaignsareimportantpartsofchangingpublicattitudesandbeliefs.

� Advertising,�promotion�and�sponsorship. Acomprehensivebanontobaccoadvertising,promotionandsponsorshipisacentrepieceofaneffectivetobaccocontrolprogramme.

� Taxes. Taxincreaseshavebeenproventobeoneofthemosteffectivemeansofreducingtobaccoconsumption,especiallyamongyoungpeople.

� Second-hand�smoke. Eliminatingsmokinginworkplacesandpublicplacesprotectsnon-smokersfromthehazardsofexposuretosmoke,discouragessmokinginitiationandpromotescessation.

The elements of comprehensive The elements of comprehensive The elements of comprehensive The elements of comprehensive TC legislationTC legislationTC legislationTC legislation

� Labelling�and�packaging. Large,clearhealthwarningsandinformationalmessages,usingrotatingmessagesdevelopedbynationalauthorities,shouldberequiredontobaccopackaging,andtobaccoproductsshouldnotbepromotedusingmisleadingterms.

� Product�regulation. Regulatoryauthorityshouldbegiventoaspecializedagency,toaddresssuchissuesasingredientdisclosure,permissibilityofharmfulconstituents,additivesafety,andtarandnicotineyields.

� Tobacco�sales. Legislationshouldprohibitthesaleoftobaccotoandbytheminors.

� Smuggling. Tocombatillicittrade,comprehensivelegislationshouldincludemeasuressuchasrequirementsforpackagemarkingsorcreationofaregimefortrackingandtracingproductsthroughthedistributionchain.

� Other�issues. Comprehensivelegislationmayalsoincludeprovisionstoaddresssmokingcessation,createschool-basedprogrammes,modifyagriculturalpoliciesoraddressissuesoflegalliability.

Key Ingredients Key Ingredients Key Ingredients Key Ingredients ---- ClarityClarityClarityClarity

� MinimizingAmbiguity–

Example�(Bad): DefinitionofPublicPlacesinIndia

Section2(l)“publicplace” meansanyplacetowhichthepublic

haveaccess,whetherasofrightornot,andincludesauditorium,

hospitalbuildings,railwaywaitingroom,amusementcentres,

restaurants,publicoffices,courtbuildings,educational

institutions,libraries,publicconveyancesandthelikewhichare

visitedbygeneralpublicbutdoesnotincludeanyopenspace;

Rule2(c)“openspace” mentionedinSection3(1)oftheActshall

notincludeanyplacesvisitedbythepublicsuchasopen

auditorium,stadium,railwaystation,busstopandsuchother

places;

Key Ingredients Key Ingredients Key Ingredients Key Ingredients ---- ClarityClarityClarityClarity

� Clarityindescriptionofviolations

� Properandwelldefinedactionforeachviolation

– BADExample:Section22.�Whoevercontravenestheprovisionofsection5shall,onconviction,bepunishable—

(a)inthecaseoffirstconviction,withimprisonmentforatermwhichmayextendtotwoyearsorwithfinewhichmayextendtoonethousandrupeesorwithboth,and

(b)inthecaseofsecondorsubsequentconvictionwithimprisonmentforatermwhichmayextendtofiveyearsandwithfinewhichmayextendtofivethousandrupees.

� Clearguidelinesw.r.t.sequenceoflegalprocedurestobefollowed

SYSTEM�OF�INCORPORATING�DELEGATED�LEGISLATION�WITH�SAME�KIND�OF�OBJECTIVITY

Key Ingredients Key Ingredients Key Ingredients Key Ingredients ---- SimplicitySimplicitySimplicitySimplicity

KISSKeep It Short & Simple

Key Ingredients Key Ingredients Key Ingredients Key Ingredients ---- SimplicitySimplicitySimplicitySimplicity

Less�is�More

Simplestructuresandstandardsusuallyleadto

fewerproblemsthanelaborateschemesorrules

riddledwithexceptionsandqualifications.

Example: Peoplewhoshouldenforcethelaw– All

Gazetted officers,etc.---- Leadstoconfusion----

couldbemoreclearerlike…..Thedepartmental

heads

Key Ingredients Key Ingredients Key Ingredients Key Ingredients ---- ConsistencyConsistencyConsistencyConsistency

Thelawmusthaveacoherentinternalstructurethatholds

togetherwithoutomissionsorgapsoflogic.Itshouldalso

beconsistentwithexistinglaws,sothetobaccocontrol

programmewillblendwithotherprogrammes.Forexample,

definitionsshouldresemblethedefinitionsofsimilarterms

inexistinglaws,unlesstherearegoodreasonsfora

differentapproach.

Example:- TobaccoControlLawinacountryhasalmost

20differentsetofrulesandtheychangetoofrequently……

eventhedefinitionsof“PublicPlaces” changeeverysix

month…..Notagoodthing

Key Ingredients Key Ingredients Key Ingredients Key Ingredients ---- FamiliarityFamiliarityFamiliarityFamiliarity

Itisusuallyadvantageoustousefamiliarconceptsand

mechanisms.Forexample,selectingwell-established

enforcementproceduresalreadyusedbyotherlaws,rather

thandesigningcompletelynewones,islikelytominimize

theriskofunexpectedproblemsinimplementation,and

maybemorereadilyacceptedbythelegislativebody.

Example: Systemofpenalizingandprosecution,asincase

oftrafficviolations,isalreadyestablished.Usingasimilar

mechanismwouldbeeasilyaccepted.

Key Ingredients Key Ingredients Key Ingredients Key Ingredients ---- FlexibilityFlexibilityFlexibilityFlexibility

Tobaccocontrollegislationshouldbeflexible.Overtime,

changeswillbeneededastheimpactofthelegislationis

evaluated,asnewscientificevidenceemerges,as

technologiesimprove,andasnewinterventionsare

designed.Legislationshouldbewrittentogiveregulatory

authoritieslatitudetoadapttotheseconditions.

It�is�not�advisable�to�have�water-tight�legislation�–

Whereas,�at�the�same�time�care�must�be�taken�that�

someone�is�not�able�to�dilute�the�basic�legislation�by�it�

being�too�lax

Key Ingredients Key Ingredients Key Ingredients Key Ingredients –––– FlexibilityFlexibilityFlexibilityFlexibilityExpansion of scope with primary objectivesExpansion of scope with primary objectivesExpansion of scope with primary objectivesExpansion of scope with primary objectives

The areas where there is a scope to use delegated legislation (Rules, Regulation and Notifications for Executive Control) should be

clearly identified, so that the law is able to adapt (But not misused) as:

– theimpactofthelegislationisevaluatedandneedforchangeis

realised

– asnewscientificevidenceemerges

– astechnologiesimprove

– asnewinterventionsaredesigned

Good�Example: Thailand’s1992TobaccoControlLaw

Things to take care ofThings to take care ofThings to take care ofThings to take care of

– Ensurenoconflictswithotherlaws

– Takingcareofthedefinitions– Shouldbeinunison

Like

PublicPlaces

ManufacturerandTrader

Cigarette

Example: Section278�of�Indian�Penal�Code�1860

Makingatmospherenoxioustohealth:- Whoevervoluntarilyvitiates

theatmosphere inanyplacesoastomakeitnoxious tothehealthof

personsingeneraldwelling orcarryingonbusinessinthe

neighbourhood orpassingalongapublicway,shallbepunishedwith

finewhichmayextendtofivehundredrupees.

Things to take care ofThings to take care ofThings to take care ofThings to take care of

Known loopholes- Negative+Negative

- Inclusionclauseindefinitionsofprovisionssoasthatitappearstobeexhaustive:Example– DefinitionofPublicPlaces

- Proviso’sandExemptionClauses

- Requirementunderthelawismentionedbutpenalconsequencesforviolationsaremissing

- Requiringspecificconditions,usuallydifficulttomonitor

How�to�avoid�them

Example:

Indian�Law: Restaurantswithseatingcapacityof30

Thailand: NonACrestaurants

Exemptionclausedifficulttomonitor

Definition of Cigarette in 1975 Definition of Cigarette in 1975 Definition of Cigarette in 1975 Definition of Cigarette in 1975 Indian ActIndian ActIndian ActIndian Act

The EnforcementThe EnforcementThe EnforcementThe Enforcement

Key to success of any Key to success of any Key to success of any Key to success of any legislation depends on itlegislation depends on itlegislation depends on itlegislation depends on it’’’’s s s s

effectiveeffectiveeffectiveeffective

ENFORCEMENTENFORCEMENTENFORCEMENTENFORCEMENT�Thesameistruefor“TobaccoControl” lawstoo

�Unfortunatelyenforcementcomponentgetsvery

littleattentionandnotmuchworkhasbeendone

onenforcementoftobaccocontrollaws