Illegal cigarettes remain a growing public health and economic challenge in South Africa. The country has seen a surge in illicit tobacco sales, undermining tax revenue and public health goals. As South Africa continues to grapple with this issue, the WHO Protocol may offer the game-changing solution it needs.
What Is the WHO Protocol?
The WHO Protocol to Eliminate Illicit Trade in Tobacco Products is an international treaty under the WHO Framework Convention on Tobacco Control (FCTC). It aims to stop the illegal cigarette trade through coordinated global actions. These include tracking and tracing, licensing, enforcement cooperation, and data sharing.
Why the WHO Protocol Matters in South Africa
South Africa has one of the highest rates of illicit cigarette consumption globally. According to the South African Revenue Service (SARS), illegal cigarettes cost the country over R28 billion annually in lost tax revenue. By adopting and enforcing the WHO Protocol, South Africa could curb this trend effectively.
Read more in The Policy Fix: What South Africa Must Do to Curb Illicit Cigarettes for actionable solutions and expert policy recommendations.
The Economic Cost of Illegal Cigarettes
A 2024 report by the WHO noted that the illicit tobacco trade accounts for around 11% of global trade, costing countries nearly US$47.4 billion in annual tax revenue. In South Africa, this revenue loss translates to fewer public services, job losses, and increased pressure on honest retailers.
Tracking and Tracing as a Game-Changer
One of the key features of the WHO Protocol is the introduction of a global tracking and tracing system. This helps governments monitor the movement of tobacco products from manufacture to sale. SARS and the Department of Health could use such tools to intercept illicit products before they enter informal markets.
Strengthening Enforcement Capacity
The WHO Protocol encourages international cooperation in law enforcement. This includes intelligence sharing, extradition agreements, and joint investigations. In a recent WHO meeting, Dr Adriana Blanco Marquizo stated:
“Our meeting took important decisions on tobacco tracking-and-tracing systems and approved a roadmap for evidence-based research on illicit trade…”
Find out how the R26.22 rule helps you identify legal cigarettes.
Public Health Impact of Illicit Tobacco
Illicit cigarettes often bypass health regulations. They can contain higher levels of toxins and are more accessible to youth. The WHO estimates that ending illicit trade could prevent one million premature deaths every six years. This is especially crucial in vulnerable communities.
Local Industry Impact and SATTA’s Role
The South Africa Tobacco Transformation Alliance (SATTA) has warned that illegal cigarettes are destroying jobs and undercutting legitimate farmers and manufacturers. Legal tobacco farming has sharply declined, with many rural communities losing vital income. SATTA’s policy recommendations include adopting track-and-trace systems and enforcing minimum pricing laws.
Regional Gaps in Protocol Adoption
Despite its benefits, many countries have yet to ratify the Protocol. In South-East Asia, for example, WHO officials have urged broader participation. Ms Saima Wazed, WHO SE Asia Regional Director, emphasised:
“All our remaining Member States should become Parties to the WHO FCTC Protocol.” (WHO)
How Can South Africa Lead?
By fully implementing the WHO Protocol, South Africa can position itself as a regional leader in tobacco control. Enhanced customs systems, stiffer penalties, and public awareness campaigns can all support this effort. SATTA’s ongoing campaign also encourages citizens to report illegal sales and support legitimate businesses.
Challenges to Implementation
However, the path forward is not without obstacles. Limited capacity, data gaps, and enforcement bottlenecks remain. According to the WHO’s 2023 Global Progress Report, many countries report poor data quality and limited cross-border coordination.
Collaboration Is Key
Solving the illicit cigarette crisis requires multisectoral partnerships. The private sector, civil society, and government agencies must collaborate. SATTA is actively promoting industry-government partnerships to drive long-term change.
Learn more about how new smoking regulations might increase black market activity in our article, ‘Proposed Smoking Regulations Could Boost Black Market, Says Expert.
A Turning Point for Tobacco Control?
The WHO Protocol holds real promise. It offers a structured, globally recognised roadmap to eliminate illegal cigarettes. If South Africa commits fully, the country could not only recover lost revenue but also improve national health outcomes. The Protocol may not be the silver bullet, but it is the most strategic tool available today.
Report illicit cigarette trade or learn more via the SATTA Reporting Portal.