Cigarette Trade in the DRC: An Alarming Insight

In the Democratic Republic of the Congo (DRC), tobacco use is a concern, with 18% of men and 2% of women aged 15 to 49 using tobacco products like cigarettes as of 2017-2018. The DRC has made efforts over the last thirty years to reduce tobacco consumption. These efforts include banning advertising for tobacco, restricting smoking in public places, requiring health warnings on tobacco packages, and taxing tobacco products. However, the tax rate of 38.7% on retail Prices is lower than the recommended 75%.

The DRC signed an international agreement in 2004, known as the World Health Organization Framework Convention on Tobacco Control, to help address the tobacco problem. In 2013, the country also signed a protocol aimed at fighting illegal tobacco trade, but this protocol has not yet been ratified. Illicit tobacco trade makes it easier for people to access tobacco products, often at lower prices, which could lead to more smoking.

The DRC shares borders with nine countries, leading to challenges in controlling the smuggling of cigarettes. Despite the ongoing issues, the scale of illegal cigarette trade in the DRC has not been examined closely before, making it hard to create effective strategies to tackle the problem. A study was conducted with the goal of understanding the extent of illicit cigarette trade by estimating how many cigarettes consumed were illegal, the amount of tax evasion, the origins of illicit cigarettes, and the factors associated with them.

#Study Design

The study involved collecting empty cigarette packs from various sources, including stationary retailers (such as shops and kiosks), mobile retailers (those selling while moving), and waste bins or streets. In the DRC, selling single cigarettes is legal, making it easier to gather empty packs from retailers. Researchers also collected data on the average price of cigarettes from different brands.

#Methodology

The study was carried out over eight provinces in the DRC, selected based on their geographical and security characteristics. Researchers defined areas as high, intermediate, or low in terms of how vulnerable they are to conflict and their proximity to borders. From each category, provinces were randomly picked, resulting in eight chosen areas for the study.

In each province, health zones were categorized into urban and rural areas, with one health zone selected from each category. Two health areas from each selected health zone were also chosen, leading to a total of 32 areas where data was collected.

#Identifying Illicit Cigarette Packs

Cigarette packs sold in the DRC must follow specific regulations. They should include health warnings, brand identifiers, and tax stamps. Misleading branding is prohibited as well. To agree on what constitutes an illicit cigarette pack, discussions were held with various stakeholders involved in tobacco control in the DRC. An empty cigarette pack was deemed illicit if it met any of these criteria:

• No tax stamp or incorrect tax stamp.
• No health warnings or warnings in a language other than French.
• No information indicating that the sale of tobacco to minors is prohibited.
• No indication of tar and nicotine content.

During the study, some packs had old yellow tax stamps, which are no longer considered valid but were still found in circulation. This raises questions about compliance with the latest regulations.

#Data Collection Process

From May 15 to June 9, 2023, data collectors aimed to gather at least 10,000 empty cigarette packs from the selected provinces. A trained team of 40 data collectors and eight supervisors carried out this task. Retailers were approached to collect empty packs, and participating retailers received information about the study, along with a unique bag to collect their packs. The bags were marked with identifiers for easier tracking.

#Data Extraction

Information was recorded about each pack, including its brand name, manufacturer, and country of origin. The presence of a tax stamp, health warnings, and tar and nicotine content was also noted. A separate survey was conducted with retailers to collect information on prices, sourcing, and the types of cigarettes sold.

#Results of the Study

In total, 10,622 empty cigarette packs were collected. The majority of these packs (67%) were from stationary retailers, while mobile retailers contributed 14%, and garbage bins/street collections made up 19%. Different provinces contributed varying numbers of packs, with the most found in Kwango province.

Overall, 8.6% of the collected packs were classified as illicit, meaning they did not meet at least one of the legal requirements. The proportion of illicit packs varied among different collection points, with 9.8% from stationary retailers, 2.2% from mobile retailers, and 9.3% from waste collections. The study indicated that illicit packs were particularly common in provinces considered very high in porosity.

In terms of income levels, 67.1% of the packs were from low-income areas, and these were more likely to be illicit compared to those from high-income areas. All illicit packs identified in the study were imported, and some brands showed higher rates of illicit packs.

None of the packs from local manufacturers and packs from Zimbabwe were considered illicit, while those from South Sudan and India were entirely illicit. This trend continued with other countries, with rates of illicit packs ranging widely based on their origin.

All illicit packs failed to comply with tax stamp requirements, and a portion of the collected packs also did not meet health warning or age restriction regulations.

#Cigarette Pricing

Data was also collected on cigarette prices, revealing that prices for packs ranged from 1,309 to 3,185 Congolese Francs. Notably, some brands with high rates of illicit packs also had higher average retail prices.

#Factors Associated with Illicit Cigarette Packs

The study found several factors that affected the likelihood of a pack being illicit. Cigarette packs from low-income areas were more than twice as likely to be illicit compared to those from high-income areas. The likelihood of a pack being illicit also increased based on the porosity of the province.

Mobile retailers were less likely to sell illicit packs while those found in garbage bins or streets were more likely to be illicit. Flavored cigarette packs showed a higher chance of being classified as illicit as well. There was no significant difference found with respect to urban or rural collection points.

#Conclusion

The study concluded that illicit cigarettes constituted about 8.6% of the total cigarette market in the DRC. Though this is a relatively low figure, it highlights the need for stronger measures to prevent illicit trade. Suggestions were made for enhancing border controls, improving monitoring systems, and ratifying international protocols aimed at combating illegal tobacco trade. There is also a recommendation to strengthen health warnings on cigarette packages to ensure they are effective and recognizable.

#Recommendations for Future Research

Ongoing monitoring of illicit tobacco trade in the DRC will help in assessing the impact of new tobacco control measures. Data gaps can be filled through thorough monitoring of tobacco sales and tax data. Understanding the effectiveness of different health warnings can also help in designing messages that work best for public health.

#Study Strengths and Limitations

This research is unprecedented in estimating the cigarette market's illegal share in the DRC. Although limited to eight provinces, the study's design ensures a more representative result. However, reliance on retailers to provide empty packs may mean some illicit packs were not reported, potentially skewing results. Nonetheless, the findings provide valuable insights into the extent of illicit cigarette trade and the need for more secure control measures.