It was clear from the beginning that if nicotine-containing e-liquid was not a tobacco product, then the only other thing it could be considered was a drug. So it was patently clear that anyone who wanted to see the ecig product continue to flourish, evolve, and remain available, also needed nicotine-containing e-liquid to be classified and regulated as a tobacco product. Thus, for the last several weeks of my involvement in the quest to assess the legal status of nicotine-containing e-liquid (and the ecig device used to vaporize it), I have been working under the assumption that nicotine-containing e-liquid was a tobacco product. This assumption ultimately led to the conclusion that, even as a tobacco product, all e-liquid containing one or more derivatives of tobacco was misbranded and/or adulterated, and thus, illegal to sell. The only way I seen to change this was for an e-liquid manufacturer or importer to register with the
FDA as a tobacco product manufacturer, and apply for a modified risk tobacco product approval and/or marketing authorization.
I was, however, recently informed by Sun that one or more importing suppliers had already sought to go down this path, to no avail. Then I was informed by LegalOne of the
FDA's "all in" determination to regulate the ecig and its e-liquid as a drug/device combination product. Neither of these two facts seemed to square with the whole modified-risk-tobacco-product-approval conclusion I had come to. This forced me to re-examine the belief that e-liquid could be regulated as a tobacco product.
After taking a closer look at the definition of tobacco product, I recently stated that I had concluded that e-liquid is not a tobacco product. Then, in rather short order, LegalOne contested this conclusion with an 'active ingredient' argument. And, as much as I would have preferred to have been able to return to the more promising position of nicotine-containing e-liquid being a tobacco product, I have found the following to be far more persuasive:
Section 201(rr)(4) of the FDCA states that:
"
A tobacco product shall not be marketed in combination with any other article or product regulated under this Act (including a drug, biologic, food, cosmetic, medical device, or a dietary supplement."
According to the
FDA's draft guidance of this prohibition, this includes a situation where:
"
A tobacco product and a non-tobacco product regulated under the FDCA are physically, chemically, or otherwise combined or mixed to produce a single entity that is marketed as containing both products."
An example given is:
Nicotine that is derived from tobacco is added to water, juice, or soda (which are regulated under the FDCA) and the water, juice, or soda is identified as containing a tobacco product.
Simply replace the words "
water, juice, or soda (which are regulated under the FDCA)" with the words "
propylene glycol and/or glycerine (which are regulated under the FDCA)", and it becomes clear that e-liquid is a prohibited combination product that cannot be regulated as a legal tobacco product. The only circumstance under which nicotine-containing e-liquid could be considered a legal product is if it were to be approved as a drug product subject to chapter V of the FDCA. Consequently, nicotine-containing e-liquid is an unapproved drug product; and the ecig, an unapproved drug delivery device.
Since nicotine-containing e-liquid cannot be regulated as a legal tobacco product, the equal protection argument that I have made in the past (regarding intended uses and classification) does not apply. As a result, the nicotine content of e-liquid is all that is needed to classify e-liquid as a drug - regardless of what claims are, or are not, made.
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