Prohibition of the sale and supply of single-use vapes: strategic environmental assessment - environmental report

5 Assessment of likely environmental impacts

5.1 Climatic Factors

A 30g single-use vape is estimated to be typically responsible for just over 150g CO₂e, of which the production of the battery is responsible for 84g CO₂e. The associated packaging accounts for a further 12g CO2e.^[114]

It was estimated in that in 2022 the total emissions from single-use vapes in Scotland were between 3,372 and 4,292 tonnes CO₂e per year, and are projected to rise to between 8,205 and 10,444 tonnes CO₂e by 2027^[114]. These figures include the embodied carbon (i.e. the emissions created extracting materials and producing single-use vapes) and not just territorial emissions (primarily disposal).

Raw material extraction and manufacturing are the most intensive life cycle stages of single-use vapes in terms of greenhouse gas emissions, responsible for 58% and 26% of total life cycle emissions respectively ^[115]. These impacts are likely to occur outside Scotland and therefore are not technically within scope of this SEA. However, they have been included in this report as the effects of climate change will be felt globally and are occurring as a result of consumption activity in Scotland, even if the activities themselves take place elsewhere. Impacts from use and disposal occur more locally. In the UK, 17% of life cycle emissions from single-use vapes were caused by incineration and waste fires and landfill sites^[116].

In the UK in 2023, the emissions from incineration of single-use vapes were estimated to be 1,681 tonnes CO₂e. A further 12,970 tonnes CO₂e are caused by waste fires, caused by crushed lithium-ion batteries when single-use vapes are incorrectly disposed of in landfill^[117]. This is projected to increase to over 139,000 tonnes CO₂e from incineration and over 37,000 tonnes CO₂e from waste fires by 2030.

Banning the sale and supply of single-use vapes is anticipated to drive a significant shift in consumer behaviour by making vapes less accessible to underage users and less appealing to casual users, whilst encouraging regular users to opt for reusable alternatives. It is not anticipated that the proposal will entirely eliminate single-use vapes from the litter stream, given that illegitimate and illegal sales may continue after the implementation of the regulations. However, a significant reduction in the consumption of single-use vapes is highly likely, with an associated drop in the resultant greenhouse gas emissions, both globally from the production of single-use vapes, and in Scotland where they are disposed of.

Reasonable alternatives

Continuing with existing commitments only, and not taking additional measures to reduce consumption of single-use vapes is unlikely to reduce the greenhouse gas emissions caused by single-use vape consumption at scale. Projections of the vape market suggest that it will continue to grow in coming years, with associated emissions from all life-cycle stages of vapes likely to increase in line without intervention^[115].

Launching an information campaign centred around responsible disposal of single-use vapes could help to reduce the greenhouse gas emissions caused by their disposal by increasing collection rates. However, improvements to vapes recycling infrastructure are required before widespread improvements to recycling rates are possible. While improving recycling rates could bring down the contribution single-use vapes make to climate change, in the UK, current recycling only offsets 1.6% of the overall life cycle emissions of single-use vapes^[115]. The most effective solution is to reduce the consumption of single-use items in the first instance, in line with the waste hierarchy and the environmental principles discussed in section 3.4.

Environmental objectives

Reduce greenhouse gas (GHG) emissions resulting from the disposal of single-use vapes, including the impacts of the embodied carbon in wasted vapes:

The proposed policy is anticipated to significantly reduce, though not completely eliminate, consumption of single-use vapes in Scotland. This will result in reducing the associated carbon emissions. The most significant impact will be down to a reduction in single-use vapes produced for the Scottish market. However, the largest emissions reductions occurring in Scotland will be those caused by incineration of waste vapes and waste fires from vape batteries in landfill sites.

SEA Impact: Significant Positive

Single-use vape consumption in Scotland is responsible for over 3,000 tonnes CO₂e each year, and without intervention, this is set to increase to over 8,000 tonnes CO₂e in the next three years^[118].

Banning the sale and supply of single-use vapes will significantly reduce their consumption and subsequent disposal in Scotland, leading to reductions in greenhouse gas emissions from incineration and waste fires.

Further avoided global greenhouse gas emissions are also anticipated outside Scotland, but are beyond the scope of this assessment.

5.2 Biodiversity

Littered vapes may cause damage to flora and fauna through the leakage of microplastics, nicotine, and other chemicals into habitats. At this time however, there is limited information available on the exact effects of this pollution on wildlife in Scotland.

E-liquids present in single-use vapes often contain high concentrations of nicotine, which studies suggest can be toxic to microbes, plants, benthic organisms, bivalves, zooplankton, fish, and mammals ^[119]. E-liquids from flavoured vapes also contain a number of additives, which are suspected in some cases to contain toxic chemicals, such as various aldehydes, tobacco-specific nitrosamines (TSNAs), benzyl alcohol, glycerol-1,2-diacetate, and dioxolane compounds^{, [120]}. The electronic components of single-use vapes can also leak metal contamination into the environment, for example aluminium, barium, cadmium, chromium, copper, iron, lead, nickel, silver, tin, and zinc. There is also evidence to suggest that toxic metals can seep into e-liquids^[121], further increasing the risk these items pose to ecosystems when littered and introduced into the environment.

There have been reported incidents of vape consumption by animals causing mild to serious harm and even death. Wildlife and Countryside Link reported both a bird and puppy death after ingesting a vape and vape pod respectively^{[122], [123]}.

Banning the sale and supply of single-use vapes is anticipated to drive a significant shift in consumer behaviour by making vapes less accessible to underage users and less appealing to casual users, whilst encouraging regular users to opt for reusable alternatives. It is not anticipated that the proposal will entirely eliminate single-use vapes from the litter stream, given that illegitimate and illegal sales may continue after the implementation of the regulations. However, a significant reduction in the consumption of single-use vapes is highly likely, with an associated drop in the prevalence of single-use vapes as litter. The extent of the resultant impact on biodiversity in Scotland is unknown, though it is expected that ecosystems will benefit from reduced exposure to nicotine, plastic, and chemical leachates from vapes discarded in the environment. The risk of ingestion by wild animals will also be reduced if the issue of littered vapes is addressed.

However, reusable vapes still pose some of the same threats as single-use alternatives if contaminated packaging items such as refill containers are littered. Littering of e-liquid refill containers poses a serious threat to habitats and species because they can contain high concentrations of residual nicotine . As reusable vapes have a longer lifespan and higher value than their single-use counterparts, littering of the devices themselves is less likely, so the risks of pollution from the plastic casings and metal and electronic components are expected to be lower.

Reasonable alternatives

Continuing with existing commitments only, and not taking additional measures to reduce consumption of single-use vapes is not anticipated to address the issue of littering. Recent trends reported on the frequency of single-use vape littering suggests that the problem could continue to grow without intervention.

Launching an information campaign centred around responsible disposal of single-use vapes could help to reduce the amount littered. Encouraging consumers to return their used vapes for recycling is likely to increase collection rates and therefore reduce the number of vapes littered, however, it is likely that litter reductions seen as a result of an information campaign would be significantly lower than those expected as a result of banning the sale and supply of single-use vapes in the first place.

Environmental Objectives:

Protect habitats and species in Scotland from damage resulting from littered single-use vapes:

The proposed policy will reduce consumption of single-use vapes in Scotland, and it is expected that a reduction in littering of such items will follow soon after. This will protect habitats and species by reducing their exposure to potentially dangerous contaminants including nicotine, plastics, and toxic metals.

SEA Impact: Minor positive

Banning the sale and supply of single-use vapes is expected to significantly reduce consumption and subsequent littering of such items, protecting habitats and species from potentially damaging contamination. Positive impacts may be offset to an extent by increased consumption of reusable vape packaging, such as refill containers, which could also enter the environment as litter. Prevalence of reusable vape components and packaging in the litter stream should be monitored.

5.3 Human health

Banning the sale and supply of single-use vapes will make vaping less accessible for some users, for example, casual users not willing to invest in the initial higher cost of a reusable vape, or underage users who obtain them illegally. The Equality Impact Assessment and Fairer Scotland Assessment consider the impacts on people with certain protected characteristics and lower incomes.

The Tobacco and Vaping Framework^[124] recognises that vapes can be one of a range of tools used by adult smokers to quit smoking, though notes that they should never be used by young people or non-smokers. The framework acknowledges recent evidence of the effectiveness of vapes as a cessation tool. Banning the sale and supply of single-use vapes will affect those using such items to quit smoking, posing a potential risk of relapse. The accessibility of reusable vapes ought to minimise the negative human health effects of banning the sale and supply of single-use vapes, since reusable alternatives can be adopted to serve the same purpose as a cessation tool. Nonetheless, some concerns have been raised over the risk of relapse among former smokers relying on single-use vapes to quit ^[125]. In a recent UK survey of 2,518 current or lapsed vapers, 53% of vapers reported quitting smoking and, 59% of smokers who also vaped reported a decrease in the amount of tobacco they used ^[126]. It is recommended that targeted support is provided for those using single-use vapes as a tool to quit smoking in order to encourage the use of suitable reusable alternatives.

Consideration was given to the impact of the proposal to overall availability, particularly to those using vapes as a method of smoking cessation. As all current retailers are anticipated to switch products to reusable alternatives, the availability of vapes for smoking cessation purposes should remain the same. Similarly, the availability of reusable vape products from online retailers is anticipated to remain the same as currently.

Individuals wishing to stop smoking will remain able to seek advice and support from existing organisations and support services. This includes Quit Your Way Scotland^[127] and NHS services such as local pharmacies. Local specialist ‘stop smoking services’ commonly help in hospitals, GP surgeries, and local community centres.

There is some evidence to suggest that vaping may act as a gateway to smoking, though more research is needed on this topic^[128]. The aforementioned survey^[129] found that 26% of single-use vape users started vaping without previous experience of smoking. Research suggests that adults under the age of 25 and those who have never regularly smoked are more likely to use single-use vapes than refillable or pod devices, suggesting that banning the sale and supple of single-use vapes is likely to impact these target groups^[130]. Lowering vape use among these groups is likely to bring health benefits through a reduction in exposure to addictive and potentially harmful substances.

As a relatively new product on the market, the knowledge of long-term impacts on human health of vaping is limited. Current research indicates that there is a significantly lower relative exposure from vaping compared to smoking in biomarkers that are associated with the risk of cancer, respiratory conditions, cardiovascular conditions, and other health concerns ^[131]. However, both the nicotine content and the presence of other ingredients such as propylene glycol, glycerin, and flavourings have raised concerns due to risk of addiction and a lack of research into the possible negative effects of inhalation^[132]. While propylene glycol is considered safe for ingestion, there is some evidence to suggest that, when inhaled it can cause upper respiratory irritation in the immediate term, though long term health effects are not well understood^[133]. There have been concerns around the inhalation of propylene glycol in occupational settings, and there been incidences reported of propylene glycerol causing skin allergy ^[134]. Glycerin also has the potential to cause irritation if it makes contact with eyes^[135]. The Committee on Toxicity of Chemicals in Food, Consumer Products and the Environment issued a statement^[136] which concluded that there was low concern for the likelihood of adverse health effects in users from short to medium term exposure to both propylene glycol and glycerin. However, the effects of long-term repeated exposures are unknown. Both ingredients were considered unlikely to represent a risk to bystanders.

Though long term impacts remain uncertain, banning the sale and supply of single-use vapes is expected to lower exposure to potentially harmful chemicals among new and non-smokers, in line with the Scottish Government’s precautionary approach to vaping products to protect public health.

Vapes containing nicotine are known to cause nicotine addiction, a particular concern regarding new and younger users. The proposed policy is likely to reduce the risk of nicotine addiction by making vaping less appealing to young people and non-smokers. It should be noted that reusable vapes and cigarettes will still be available on the market, and illegal and illegitimate sale of single-use vapes is likely to continue. While the risks of nicotine addiction will be reduced as a result of this policy, they will not be eliminated.

A Canadian study^[137] analysing the constituents of vape products found that over one fifth of the products tested contained flavouring chemicals which posed a potential risk of inhalation toxicity (e.g. benzyl alcohol, benzaldehyde, and vanillin). Measurable levels of TSNAs were detected in 70% of tested products. The study concluded that while further research is needed, the vapes tested contained several constituents that may present excess risk to human health including some flavouring chemicals and carcinogenic nitrosamines.

Another health and safety concern resulting from the use of single-use vapes is danger to the public and waste workers from waste fires. The majority of single-use vapes are discarded in the residual waste bin and sent to landfill or incineration. This can result in fires, especially at waste management facilities due to the presence of a lithium-ion battery which can set alight when crushed^[138]. Eunomia estimates that 39 fires were caused by single-use vapes in landfill sites in the UK in 2023, and given projected increases in consumption, this could rise to 112 by the year 2030 if no action is taken^[139]. This is recommended to be interpreted as a lower bound for the number of waste fires caused by single-use vapes. Fires may also be caused by vapes in waste collection vehicles, waste transfer sites and recycling facilities but limited data is available on these incidents.

Banning the sale and supply of single-use vapes will significantly reduce the number of vapes in the residual waste stream and therefore in landfills, waste collection vehicles, and other waste management facilities. The proposed policy is therefore expected to reduce the human health and safety risk posed by waste fires.

It is also anticipated that secondary benefits to human health will arise as a result of reduced littering and resultant improvements to the quality of outdoor spaces. The level of litter in a neighbourhood has the potential to have a direct and indirect bearing on an individual’s mental wellbeing with street litter among the environmental predictors of distress and depression among residents ^[140] .In addition, mental wellbeing is correlated with the level of satisfaction of residents with the local area, the time spent outside during leisure time, and feelings of safety and security, all of which are likely to be influenced by the presence (or absence) of litter^[141].

There is potential for further indirect health benefits as a result of the reduced risk of pollution to air, water, and soil discussed in sections 5.6 - 5.8.

Reasonable alternatives

Neither current commitments nor an information campaign on responsible disposal are likely to address the human health concerns surrounding use of single-use vapes. Consumption of vapes is projected to increase in coming years in the absence of intervention.

Efforts to increase responsible disposal of single-use vapes (i.e. collection for recycling) could reduce the risk of waste fires, therefore improving human health of any individual harmed in an incident on a collection vehicle or waste management facility. However, the scale of any improvements would be significantly less than removing single-use vapes from the legal market altogether.

Of the options considered in this assessment, the proposed policy is believed to represent the most significant benefits to human health, in particular to young people and new smokers. However, it also represents some potential risks by limiting the range of available cessation tools for those trying to quit. Negative impacts for smokers and former smokers are expected to be minimal due to the ready availability of reusable alternatives.

Environmental Objectives

Improve human health in Scotland through a reduction in the ease of use of single-use vapes for new smokers, and the associated health concerns:

The proposed policy will reduce the consumption of single-use vapes in Scotland. Children, young people, and non-smokers are likely to benefit from reduced risk of nicotine addiction and inhalation of potentially harmful substances. Due to limited research, the long term effects of vaping are not fully understood. Taking a precautionary approach protects the public from potential unknown health risks. The impact of the proposed policy on those using single-use vapes as a cessation tool should be monitored, and targeted support provided to this group.

Reduce the risk to the general public from second hand inhalation of vapours and exposure to chemical pollution and litter caused by vapes:

The proposed ban will reduce exposure of the general public to the chemicals within vapes, though the risks of second-hand vapour inhalation to bystanders is not considered to be significant. Secondary benefits are anticipated through reduced pollution of water and soil from residual e-liquids in littered vapes, as well as mental health benefits due to improved appearance of public spaces and landscapes as a result of reduced littering. These impacts are discussed in sections 5.5 - 5.9.

Reduce the risk of harm to waste managers and members of the public resulting from fires caused by incorrectly disposed vapes:

The proposed policy will reduce the number of single-use vapes in the residual waste stream, thus reducing the risk of fires at landfill sites, in waste vehicles, and in other waste treatment facilities. Waste managers and members of the public will therefore benefit from a lower risk of harm from waste fires.

SEA Impact: Positive (with some unknown impacts)

Human exposure to addictive and potentially harmful substances is expected to be reduced as a result of the proposed policy, though some potential risk was identified among former smokers and those trying to quit smoking. Reusable vapes are expected to significantly mitigate these risks, along with current smoking cessation support and offerings through the NHS.

A reduction in the risk to bystanders of second-hand inhalation will broaden the human health benefits if the ban results in an overall drop in vaping, though such impacts are not understood to be significant.

The health and safety risks of fires caused by lithium-ion batteries in the waste stream will also be reduced, owing to a smaller volume of single-use vapes being disposed of in the residual waste stream.

There will also be indirect secondary health benefits resulting from the wider environmental benefits such as a reduction of chemicals within e-liquids polluting soil and water and mental health benefits from improved landscapes and reduced littering.

Illegal trade of single-use vapes may mean that, while the human health risks described above are reduced, they will not be entirely eliminated.

5.4 Material Assets

As with any single-use item, when a vape is disposed of by incineration, landfill or as litter, the materials used to produce it are wasted.

It is estimated that between 800 and 1,000 tonnes of single-use vapes and their packaging are discarded each year in Scotland^[142]. Without intervention, this is expected to increase to between 1,900 and 2,500 tonnes by 2027. An estimated 43.3% - 46.7% of single-use vapes are disposed of in the residual bin, and 3.5% - 10.6% are littered^[143].

A single-use vape usually contains: a plastic or metal casing, a plastic mouthpiece, a synthetic woven filler, a metal coil, a battery (often a lithium-ion polymer battery), a sensor, and sometimes LEDs^[144]. The battery makes up approximately 34% of the mass of a typical, and the remaining materials are usually 83% plastic and steel ^[145]. Single-use vapes are also known to contain small amounts of critical metals such as cobalt and lithium. Packaging is usually made up of cardboard, paper, and metallised polymer film.

The limited lifespan of a single-use vape means that more items are purchased, and therefore larger quantities of these materials are required to fulfil the same function as a reusable vape. A reusable vape can be refilled, recharged, and consequently reused multiple times for a longer period of time than its single-use counterpart, meaning less material is consumed.

Reasonable alternatives

While existing commitments may improve collection and recycling, they do not address the rapidly increasing consumption of single-use vapes. If recycling infrastructure improves, more materials could be recovered from wasted single-use vapes. However, in line with the waste hierarchy, the maximum impact in terms of preserving material assets will be achieved by reducing the waste arisings in the first instance, and encouraging consumption of reusable vapes.

An information campaign focused on how to responsibly dispose of single-use vapes could also improve collection of vapes for recycling. However, this would need to be combined with improvements to the necessary recycling infrastructure to achieve widespread improvements in recycling. This option also fails to address the root of the issue, as it is not likely to affect consumption of single-use vapes.

Environmental objectives

Reduce consumption of virgin materials, including critical raw materials, used in vapes:

By banning the sale and supply of single-use vapes, consumption of the plastic, steel, batteries, and other materials required to produce them will go down. As vapes are known to contain small amounts of critical raw materials, the proposed policy is expected to lower Scotland’s contribution to the depletion of critical resources such as lithium and cobalt.

Reduce loss of materials to landfill, energy recovery, or litter in the form of single-use vapes:

Once single-use vapes are no longer readily available to consumers, it is anticipated that there will be a significant reduction in the volume of such items in the residual waste stream and dropped as litter. A shift towards reusable alternatives is likely, meaning there may be an increase in reusable vape packaging such as refill containers.

SEA Impact: Significant positive

The proposed policy is anticipated to reduce consumption of the materials used to produce single-use vapes, for example, steel, plastic, lithium-ion batteries, and other metals. A shift towards reusable alternatives will reduce the amount of these materials discarded as waste in landfill, by incineration, or dropped as litter.

5.5 Landscape and visual impacts

Single-use vapes are reported to be the fastest growing litter item in Scotland, with 44% respondents to the 2023 Scottish Litter Survey claiming to see them as litter “often”, and 50% noticing an increase in this type of litter over the past 12 months^[146]. The survey found that sightings of littered vapes were most common in urban and less affluent areas.

There is limited data on the exact number off single-use vapes littered each year, though it was estimated that it equates to around 10% of all vapes consumed; equivalent to between 21 and 79 tonnes in 2022 ^[147].

Banning the sale and supply of single-use vapes is anticipated to drive a significant shift in consumer behaviour by making vapes less accessible to underage users and less appealing to casual users, whilst encouraging regular users to opt for reusable alternatives. It is not anticipated that the proposal will entirely eliminate single-use vapes from the litter stream, given that illegitimate and illegal sales may continue after the implementation of the regulations. However, a significant reduction in the consumption of single-use vapes is highly likely, with an associated drop in the prevalence of single-use vapes as litter.

It should be noted that a shift in demand for reusable alternatives could result in an increase in consumption of refill containers for refillable vapes. While these containers have not been reported as an issue in the litter stream on the same scale as single-use vapes, it is recommended that prevalence of litter associated with reusable vapes should be monitored and measures taken to ensure a displacement effect does not occur to negate the benefits anticipated from this policy.

Reasonable alternatives

Continuing with existing commitments only, and not taking additional measures to reduce consumption of single-use vapes is not anticipated to address the issue of littering. Recent trends reported on the frequency of single-use vape littering suggests that the problem could continue to grow without intervention.

Launching an information campaign centred around responsible disposal of single-use vapes could help to reduce the amount littered. Encouraging consumers to return their used vapes for recycling is likely to increase collection rates and therefore reduce the number of vapes littered, however, it is likely that litter reductions seen as a result of an information campaign would be significantly lower than those expected as a result of banning the sale and supply of single-use vapes in the first place.

Environmental objectives

Enhance the visual impact of Scotland’s landscapes through a reduction in the volume of littered vapes in the environment:

Curbing the fast-growing issue of littered vapes is expected to have a significant positive effect in this topic area, since fewer littered items will detract from landscapes and cause negative visual impacts in outdoor areas across Scotland.

SEA Impact: Significant positive

A reduction in availability of single-use vapes will result in a reduction in occurrences of vapes as litter, thus avoiding sightings of items in the environment that detract from the Scottish landscape.

5.6 Air

Single-use vapes can contribute to air pollution in a number of different ways. Firstly, vapours released during use can pollute the surrounding air on a local scale. Secondly, components of vapes that are incinerated at the end of their lives will contribute to air pollution in the area surrounding the incinerator. Finally, when lithium batteries are disposed of incorrectly and reach landfill sites, they can cause waste fires when compressed. Such fires can cause significant levels of air pollution in the surrounding area as well as greenhouse gas emissions.

When vapes are used, vapours are produced which are potent sources of environmental air pollution, for example, carbon monoxide and aldehydes^[148]. Banning the sale and supply of single-use vapes is anticipated to reduce their use among the Scottish population, thus reducing the associated air pollution.

At the end of their usable lives, the majority of single-use vapes are discarded in the residual waste bin and sent to landfill or incineration. Sales of single-use vapes are projected to increase in the absence of intervention, and so will the associated waste arisings and emissions of both greenhouse gases and airborne pollutants^[149]. Incineration of waste is linked to air and noise pollution on a local scale, though with current stringent emissions standards, the evidence is that the air quality impacts are likely to be small^[150].

If single-use vapes are disposed of as residual waste while still containing their batteries, it can result in fires, especially in landfills, as lithium-ion batteries can set alight when crushed^[151]. Eunomia estimates that 39 fires were caused by single-use vapes in landfill sites in the UK in 2023, and given projected increases in consumption, this could rise to 112 by the year 2030 if no action is taken^[152]. This is recommended to be interpreted as a lower bound for the number of waste fires caused by single-use vapes, since fires may also be caused in waste collection vehicles, waste transfer sites and recycling facilities but limited data is available on these incidents.

In 2023, fires caused by single-use vapes in landfill sites across the UK were estimated to produce the following levels of air pollutants:

• 10,439 kg nitrogen oxides;
• 13,048kg of sulfur oxides; and
• 2,372 kg of particulate matter (PM2.5). ^[153]

By 2030, it is estimated that these figures could have increased by 187%^[154].

Banning the sale and supply of single-use vapes will significantly reduce the number of these items in the waste stream, thus reducing the risk of fires and the associated release of pollutants.

Reasonable alternatives

Continuing with existing commitments only is not anticipated to address the growing popularity of vaping in Scotland. Air pollution in the form of vapours such as carbon monoxide and aldehydes produced during the use phase of a vape’s life cycle are therefore not likely to be reduced without intervention. A communications campaign focused on the end of life destination for single-use vapes will also not affect air pollution during use.

Existing commitments and further communications campaigns seeking to drive up recycling rates for single-use vapes could have a positive impact on air quality. If interventions are successful in diverting vapes from the residual waste stream to be recycled, there will be fewer single-use vapes and, critically, fewer of their batteries, in waste management sites such as landfills. The risk of waste fires would therefore be reduced, protecting air quality in the surrounding areas from the associated pollutants. The scale of the improvement is not likely to be as significant as banning the sale and supply of such items in the first instance, and the opportunity to align with the environmental principles of tackling environmental damage at source with preventative action would be missed.

Environmental Objectives

Contribute to improved air quality through the reduction in use of single-use vapes and resultant pollution from vapours: A small scale reduction in air pollution is anticipated as a result of a likely reduction in vaping and the associated release of polluting vapours. Locally, this is expected to improve air quality, though impacts are not expected to be significant.

Reduce the risk of air pollution caused by the disposal of waste vapes and the associated risk of waste fires: The proposed policy is anticipated to reduce consumption of single-use vapes in Scotland, and therefore reduce the number of these items in the residual waste stream. This will result in a decrease in both emissions from energy from waste facilities and a reduction in the likelihood of waste fires caused by the lithium-ion batteries found inside single-use vapes. Improvements to air quality will follow, in particular in areas surrounding waste management sites.

SEA Impact: Positive

The proposed policy is anticipated to result in minor improvements to air quality during the use phase of a single-use vapes’ life cycle, and more notable improvements at the end-of-life stage. A reduction in single-use vapes in the residual waste stream will reduce the risk of waste fires occurring at facilities such as landfill sites, thus reducing the release of air pollutants such as particulate matter, nitrogen oxides, and sulfur oxides.

5.7 Water

Scotland’s consumption of single-use vapes was estimated to use between 18,000m³ and 24,000m³ of water in 2022, approximately 900ml water per device ^[155] during the manufacturing stage. However, as the majority of this water use will occur outside Scotland where the vapes are produced, the water consumption impacts of the proposed policy are considered out of scope for this assessment.

When single-use vapes are littered into the environment their constituent parts can leak chemicals into groundwater and nearby bodies of water.

One of the ingredients in the e-liquid found within single-use vapes is glycerin. Glycerin has some indications of aqua toxicity at high levels of exposure. The European Chemicals Agency (ECHA) Registration Dossier^[156] states that efforts should be made to prevent glycerin from entering into soil, ditches, sewers, waterways, and groundwater. The Dossier also states that propylene glycerol, another ingredient in vape e-liquids, should be prevented from entering drains and water courses, as there are some minor indications of aqua toxicity. The nicotine within the residual liquids in littered vapes also poses a risk to the aquatic environment.

The electronic components of single-use vapes can also leak metal contamination into the environment, for example aluminium, barium, cadmium, chromium, copper, iron, lead, nickel, silver, tin, and zinc^[157]. There is also evidence to suggest that toxic metals can seep into e-liquids^[158], further increasing the risk these items pose to ecosystems when littered and introduced into the environment.

Banning the sale and supply of single-use vapes is anticipated to drive a significant shift in consumer behaviour by making vapes less accessible to underage users and less appealing to casual users, whilst encouraging regular users to opt for reusable alternatives. It is not anticipated that the proposal will entirely eliminate single-use vapes from the litter stream, given that illegal sales may continue after the implementation of the regulations. However, a significant reduction in the consumption of single-use vapes is highly likely, with an associated drop in the prevalence of single-use vapes as litter. Waterways are likely to benefit from a resultant drop in leachates from vapes discarded in the environment, such as propylene glycerol, glycerin, nicotine, and metals.

However, reusable vapes still pose some of the same threats as single-use alternatives if contaminated packaging items such as refill containers are littered. As reusable vapes have a longer lifespan and higher value than their single-use counterparts, littering of the devices themselves is less likely, so the risks of pollution from the plastic casings and metal and electronic components are expected to be lower.

Reasonable alternatives

Continuing with existing commitments only, and not taking additional measures to reduce consumption of single-use vapes is not anticipated to address the issue of littering. Recent trends reported on the frequency of single-use vape littering suggests that the problem could continue to grow without intervention.

Launching an information campaign centred around responsible disposal of single-use vapes could help to reduce the amount littered. Encouraging consumers to return their used vapes for recycling is likely to increase collection rates and therefore reduce the number of vapes littered, however, it is likely that litter reductions seen as a result of an information campaign would be significantly lower than those expected as a result of banning the sale and supply of single-use vapes in the first place.

Environmental objectives

Protect waterways in Scotland from pollution resulting from littered single-use vapes e.g. from residual nicotine, additives, and microplastics:

The proposed policy will reduce consumption of single-use vapes in Scotland, and it is expected that a reduction in littering of such items will follow soon after. This will protect waterways in Scotland by reducing contamination from residual e-liquids.

SEA Impact: Minor positive

Banning the sale and supply of single-use vapes is expected to significantly reduce consumption and subsequent littering of such items, protecting habitats and species from potentially damaging contamination. Positive impacts may be offset to an extent by increased consumption of reusable vape packaging, such as refill containers, which could also enter the environment as litter. Prevalence of reusable vape components and packaging in the litter stream should be monitored.

5.8 Soil

Littered single-use vapes may pose a risk to soils in Scotland through contamination via residual e-liquids containing chemicals such as glycerin. The ECHA Registration Dossier indicates that efforts should be made to prevent glycerin from entering into soil and ditches^[159]. Impacts are believed to be minimal due to the rapid biodegradability of glycerin in soil.

The electronic components of single-use vapes can also leak metal contamination into the environment, for example aluminium, barium, cadmium, chromium, copper, iron, lead, nickel, silver, tin, and zinc. There is also evidence to suggest that toxic metals can seep into e-liquids^[160], further increasing the risk these items pose to ecosystems when littered and introduced into the environment.

The proposed policy is anticipated to reduce consumption of single-use vapes and associated littering in Scotland. While this reduces the risks posed to soils in the area where vapes are littered, impacts are expected to be minimal. The Scottish Litter Survey^[161] found that sightings of littered vapes were most common in urban areas, suggesting that peatlands and soils in rural natural habitats are less likely to be affected.

The impacts may be partially offset by an increase in consumption of reusable vapes, and related packaging components.

Reasonable alternatives

Continuing with existing commitments only, and not taking additional measures to reduce consumption of single-use vapes is not anticipated to address the issue of littering. Recent trends reported on the frequency of single-use vape littering suggests that the problem could continue to grow without intervention.

Launching an information campaign centred around responsible disposal of single-use vapes could help to reduce the amount littered. Encouraging consumers to return their used vapes for recycling is likely to increase collection rates and therefore reduce the number of vapes littered, however, it is likely that litter reductions seen as a result of an information campaign would be significantly lower than those expected as a result of banning the sale and supply of single-use vapes in the first place.

Environmental Objectives

Enhance soil quality in Scotland by reducing soil pollution from littered single-use vapes e.g. from residual nicotine, additives, and microplastics:

The proposed policy will reduce consumption of single-use vapes in Scotland, and it is expected that a reduction in littering of such items will follow soon after. This will protect soils in Scotland from contamination from residual e-liquids, though the impacts are not expected to be significant.

SEA Impact: Minor positive

Banning the sale and supply of single-use vapes is expected to significantly reduce consumption and subsequent littering of such items, protecting habitats and species from potentially damaging contamination. Positive impacts may be offset to an extent by increased consumption of reusable vape packaging, such as refill containers, which could also enter the environment as litter. Prevalence of reusable vape components and packaging in the litter stream should be monitored.

5.9 Cumulative impacts

The overall impact of the proposed policy is summarised against each environmental topic below.

Climatic Factors: ++

Bio-diversity: +

Water: +

Human health: +

Soil: +

Air: +

Material Assets: ++

Landscape and visual impacts: ++

Key

++: Positive impacts

+: Minor or uncertain positive impacts

There will also be interactions and synergies between the different environmental topics. For example:

• Reducing climate change impacts will benefit biodiversity, as will improved air, soil, and water quality which form part of Scotland’s ecosystems and wildlife habitats.
• Nearby water and soils can benefit from each other’s improved quality, as contaminants may seep between the two.
• Human health will benefit from cleaner air, water, and soils, with a reduced risk of contamination reaching the food chain or drinking water supplies.
• Improvements to the quality of landscapes and biodiversity can bring positive mental health and wellbeing impacts to the population.
• Healthy ecosystems will embolden the positive visual impacts to Scotland’s landscapes, as they will be enhanced by healthy flora and fauna.
• Preservation of material assets reduces the production of greenhouse gases related to virgin material production and manufacturing, thus further reducing contribution to climate change.
• Reduction in the release of air pollutants can also reduce contributions to climate change, and vice versa, lowering emissions of greenhouse gases will improve local air quality.
• As Scotland’s soils and peatland are a carbon sink, healthy soils can bring improvements to climatic factors.

No significant conflicts were identified within the environmental topics considered as part of this assessment.