Although I am a PV (personal vaporizer) user, I am also an attorney admitted to practice in the states of Ohio and Illinois as well as the United States District Court for the Southern District of Ohio. As an attorney, I find the proposed deeming provisions problematic, particularly in how the FDA proposes to consider PVs as falling within its definition of "tobacco products" and how it plans to draw distinctions between "accessories" and "components" in the context of PVs.
First and foremost, many PV users do not utilize any product made or derived from tobacco. Some choose to vaporize "e-liquid" or "e-juice" containing no nicotine whatsoever. This means that not only would the products they vaporize not be considered "tobacco products" as defined under Section 201(rr) of the FD Act (21 U.S.C. 321(rr)), as amended by the Tobacco Control Act, but neither would the components or parts included as part of a finished product or intended for consumer use in the consumption of zero-nicotine liquids. Furthermore, it would appear that the proposed regulations would not cover liquids containing synthetic nicotine, as synthetic nicotine is not derived from tobacco, and thus the components or parts included as part of a finished product or intended for consumer use in the consumption of synthetic-nicotine liquids would not be covered by the proposed regulations either.
Second, assuming for the sake of argument that all e-liquid (including that containing no nicotine or synthetic nicotine) may be considered a "tobacco product" (it should not be, as explained above), it will prove difficult--if not impossible--to draw distinctions between unregulated accessories and regulated components and parts in the context of PVs. For example, the regulations cite lighters as an accessory. However, lighters are intended for consumer use in the consumption of tobacco products. By analogy, the batteries and heating elements of PVs, although intended for consumer use in the consumption of e-liquid, should also be treated as accessories. This problem becomes even more complex when considering to variety of materials that are "are included as part of a finished" PV: Which batteries will be considered "intended for consumer use in the consumption of tobacco products"? Which wires? Which switches? Which tubes? Which cotton? Which screws? Does it depend on the manufacturer? The marketing? The actual use by consumers? It is worth noting that some of the first advanced PVs were simply modified flashlights, and that today's advanced PVs vary more in their form than their substance and function.
I do feel that regulation of PVs and e-liquid is important and that further studies should be done to determine how vaporizing can be made as safe and as enjoyable as possible. However, it is inappropriate and simply untenable to do so under regulations covering tobacco products. To try to fit this "square peg in a round hole" will lead to confusion, inconsistency, and (as I suspect many others have noted in their comments) the crippling of a quickly-growing, innovative industry made up of small businesses. The FDA should reconsider regulating PVs and e-liquid under the proposed rule and wait to regulate this area until our elected representatives in Congress have expressly granted the FDA the authority to do so by legislative enactment.