I've drafted this up to answer some specific points raised in the consultation document. Obviously, this is only a draft, and I have every intention of revisiting it a few times before I finally reply to the consultation.
Regulation by function:
If the function of providing nicotine as a drug is considered, then, by definition, this must include the smoking of tobacco.Topical and oral delivery vary greatly from the use of electronic cigarettes, but in all cases, users will self titrate - that is, once their plasma nicotine levels are "satisfactory" they will cease administration, and will use whichever delivery system again when levels drop below their personal threshold. This speaks to the sub-heading of "Efficacy".
Many users of electronic cigarettes do not consider themselves to be self-medicating, nor using electronic cigarettes in a therapeutic manner, but simply to have switched to a habit similar to smoking, but many times safer, not only for themselves, but also for those around them. Many are people who would not consider currently licensed NRT, as they have no desire to quit smoking, but, at the same time, wish to rid themselves of the major risks of smoking tobacco - risks presented not by nicotine, but by everything else that burned tobacco contains.
Safety
In assessing the safety of, specifically, electronic cigarettes, the MHRA's own documentation, together with the government's policy document, the phrase "a body of evidence is emerging that suggests that nicotine, while addictive, is actually a very safe drug" is used. I have no argument with that statement. Electronic cigarettes have been available worldwide for some three to four years now, and thus far there are no documented cases of anyone suffering any ill effects from them.
As an alternative to smoking tobacco, Dr. Murray Laugesen has completed research that shows that the safety level of electronic cigarettes is "several orders of magnitude (100 to 1000 times) less dangerous than smoking tobacco cigarettes"
Electronic cigarettes produce no secondhand smoke - there is no passive smoking with them, so public safety is also several orders of magnitude better than with traditional tobacco smoking.
To, once more, quote Dr. Laugesen "E-cigarettes are cigarette substitutes. If they can take nicotine market share from cigarettes, and that is the big question, they will improve smoker and population health. "
Withdrawal from the market under process of MA stands every chance of reversing the trend towards electronic cigarettes taking the nicotine market share from cigarettes. For this reason, Option 1 should not be considered and Option 2 is highly questionable.
Quality
Over 75% of the supply of the liquid used in electronic cigarettes is manufactured in China by Dekang (also known as Boge and Ecis), and is rebranded by distributors and resellers, or sold under the Dekang brand. It is also the liquid tested recently in the USA and found to be free of the carcinogenic TSNs and the liquid used in the Ruyan V8 which Dr Laugesen used for his testing.
In over three years of availability for electronic cigarettes, there have been no recorded cases of ill-effects from any nicotine liquids. Smokers choosing to switch to electronic cigarettes, therefore, are choosing to move to a much safer, and, one could propose, better quality alternative to smoking tobacco. Surely this should be encouraged, not discouraged by subjecting this acceptable alternative to regulation as a medicinal product.
Efficacy
Since tolerance to and dependence on nicotine both vary from person to person, judging the efficacy of any nicotine delivery method on a release rate on a per second or minute basis bears no relation to the reality of usage. Smokers and users of currently licensed NRT as well as NCPs (and particularly electronic cigarettes) self titrate. It has been demonstrated, for instance, that smokers who switched to low nicotine yield cigarettes simply smoked more of them in order to bring their blood nicotine levels to their "satisfactory" value. A user of nicotine lozenges, when presented with a lozenge of half the dosage that s/he is used to will, quite simply, use twice as many (unless a quit effort is being undertaken).
Thus, the efficacy of current unlicensed NCPs is almost entirely dependent upon the individual - for instance, a lower concentration of nicotine in an electronic cigarette cartridge will simply accelerate the next usage, while a higher concentration cartridge will be used for a shorter length of time.
Impact Assessment.
I am unclear as to which UK manufacturers of electronic cigarettes and their associated liquids the IA section of the document refers. However, aside from only two hardware manufacturers, I know of only two UK based liquid manufacturers, both of whom, I believe, have their liquids prepared in laboratories already producing licensed NRT. The current market is small, and a fee of over £28,000 for obtaining approval would, it seems to me, to be only the tip of the iceberg. These products are demonstrably very much safer than smoking tobacco, are generally not used medicinally, and indeed, could be compared to caffeine bearing products like coffee, soft drinks and so on rather than medicines.
It seems inappropriate to subject them to regulation as medicines when they are primarily used as an alternative to smoking tobacco, and not as a therapy to aid a quit attempt. As such, they serve the very useful purpose of contributing towards a Smoke-Free Britain, but removal from the market pending approvals would, in effect, condemn users to returning to smoked tobacco, as the vast majority would not consider currently licensed NRT, bearing in mind they have chosen to switch, not to quit. That many have ceased smoked tobacco usage is an accidental by-product of their electronic cigarette usage.