Restore Local Authority
Currently, Washington State's laws on commercial tobacco regulation - including e-cigarettes - block local authorities from addressing their specific community health needs. This is called preemption.
Washington is 1 of only 5 states with broad preemption of local commercial tobacco regulations - making it one of the strictest in the nation. In contrast, 19 states have no such preemption and 26 states have limited preemption.
Preemption is a problem because it creates barriers to health equity and blocks local policies that would protect young people from developing a nicotine addiction. Commercial tobacco disproportionately affects communities of color, lower-income individuals, LGBTQ+ people, and those living in rural areas, making state-level preemption policies even more harmful to these groups.
Our Focus
Washington Breathes advocates for policies, practices, and programs that support communities in finding creative solutions to their local needs. This includes stronger regulations, controlling commercial tobacco sales and marketing, and protecting young people from starting to use commercial tobacco.
Surgeon General's Report on Tobacco-Related Disparities
A November 2024 report "Eliminating Tobacco-Related Disease and Death: Addressing Disparities" explains the factors that drive tobacco-related health disparities, including preemption of local policies that protect communities, and recommends strategies to end disparities.
Why Local Authority is Needed
Effective and equitable policymaking should start from within the community. When local communities come up with solutions to their challenges and work together to implement them, state governments should support and enhance these efforts — not strike them down.
Public health and community health is inherently local. Preemption is often bad for community health because it takes away the power of a local governments to meet the needs of their specific communities.
The benefits of local policies and decision-making include:
- the ability to address specific local needs - like disparities in nicotine use;
- giving local communities more voice in protecting themselves from industry tactics; and
- fostering innovation through new policy approaches.
In states without preemption, cities and counties are able to adopt protective local policies, like these:
- Using local zoning laws to restrict smoke/vape shops from operating near schools, parks, playgrounds, and skate parks where children and youth gather
- Prohibiting sales of flavored e-cigarettes, menthol cigarettes and/or flavored cigars to reduce youth use and reduce disparities
- Limiting or prohibiting point-of-sale tobacco advertising that is visible to children and youth
- Prohibiting commercial tobacco sales in pharmacies, as it is contradictory to promoting health
- Restricting use of discount tactics and price promotions that can entice new users and increase access for youth
- Establishing minimum pack sizes for sales of cigars, little cigars, and cigarillos
- Issuing local tobacco retailer licenses to help support local compliance activities to prevent sales to underage youth.
These protective local policies are not allowed in Washington State.
Preemption is A Tobacco Industry Tactic
The tobacco industry has long supported state preemption laws as a tactic for shifting commercial tobacco control decisions away from local communities and towards state legislatures, where industry lobbyists hold more influence. By lobbying for federal and state laws to limit local authority, the tobacco industry aims to prevent local governments from enacting stronger regulations.
Preemption limits a local government's ability to enact locally-tailored policies to protect the health of their citizens. Once preemption is in place, it can be difficult to overturn or reverse.
“By introducing pre-emptive statewide legislation we can shift the battle away from the community level back to the state legislatures where we are on stronger ground.” —Tina Walls, Philip Morris, July 8, 1994
How the Vaping Industry Is Using a Defensive Tactic Pioneered Decades Ago by Big Tobacco Sarah Milov, author of The Cigarette: A Political History, in Time Magazine
Video: In this session from our Policy Change Learning Circle, we explain what preemption is, how the tobacco industry and other business interests use preemption as a strategy, Washington’s regulatory environment, and the current limits on local authority. Jill Bednarek, with the Colorado Department of Public Health and Environment, shares their success story in overturning state law that blocked local authority to regulate commercial tobacco retailers.
How to Restore Local Authority in Washington State
Residents want what’s best for their towns and cities. They know their problems and see them up close. To fix problems, state governments should listen to local communities—not to commercial tobacco corporations that sell addictive, deadly products. Local knowledge should inform local laws.
Preemption of local commercial tobacco regulations is a policy choice in Washington State that can be changed by state policymakers.
A More Effective Approach:
Use state laws to set strong, evidence-based standards to protect public health as the "floor"
and
Preserve the rights of cities, counties, and local Boards of Health to enact strong local laws that adequately address the needs in their community
State laws should provide a foundation to build on — ensuring basic protections so everyone is treated fairly. Local governments should have the ability to strengthen those protections based on what they know about their community's needs.
In fact, the "floor" preemption approach above already works in Washington for cannabis sales and marketing. State law only allows cannabis sales in more stringently regulated 21+ stores, limits the total number of retail licenses, and creates buffer zones around schools, playgrounds, parks, and other places children and youth gather. In addition, cities, towns, and counties can choose to limit the number of cannabis stores beyond state license limits, designate specific business zones for licensed cannabis stores, or prohibit cannabis sales entirely.
Additional Resources
- “Better Tobacco Control Policy Starts Locally”, Delmonte Jefferson and Cynthia Hallett for Robert Wood Johnson Foundation blog (July 2022).
- Why Preemption Matters for Tobacco Control, Public Health Law Center, Dec. 2023
- “State Preemption of Commercial Tobacco Regulations: Impact in Washington State“ fact sheet from the Washington State Department of Health.
- Preemption Fact Sheet, CDC State Tobacco Activities Tracking and Evaluation (STATE) System
- Preemption: The Biggest Challenge to Tobacco Control, Tobacco Control Legal Consortium, Public Health Law Center
- Tobacco Point of Sale Preemption, CounterTobacco.org
- Tobacco Point of Sale Playbook 2022, ChangeLab Solutions
- Voices for Healthy Kids, Preemption Toolkit, American Heart Association. The Preemption Creative Toolkit provides ideas on how to talk about changing preemption.
From Public Health Law Center:
- Checked at the Check-Out Counter: Preemption at the Tobacco Point-of-Sale, Public Health Law Center
- Not for Sale: State Authority to End Cigarette Sales, Public Health Law Center
From ChangeLab Solutions:
- Assessing and Addressing Preemption: A toolkit for local policy campaigns,
- Understanding Preemption: A Fact Sheet Series
- The Consequences of Preemption for Public Health & Equity
- Fundamentals of Preemption
- Preemption: What It Is, How It Works, and Why It Matters for Public Health
- Preemption and Public Health Facilitator’s resources
- At-A-Glance: Research on Preemption, Public Health, and Equity
From City Associations:
- "Long Live Home Rule" webpage of the Association of Washington Cities, including a report.
- City Rights in an Era of Preemption: A State-by-State Analysis, National League of Cities Center for City Solutions
- Preemption 101 Fact Sheet, National League of Cities, overviews types of preemption, but does not address tobacco preemption
Other Sources:
- Protect Local Control, Americans for Nonsmokers’ Rights, focusing on smoke-free activity by state, with interactive tools and Preemption Watch Bill Tracking Summary
- Preemption Message Manual, Voices for Healthy Kids
- Preemption Creative Toolkit, Voices for Healthy Kids
- Preemption Key Messaging, Voices for Healthy Kids
- Preemption Message Wheel, Voices for Healthy Kids
- Connecting the Dots: How to Message the Abuse of State Preemption, Local Solutions Support Center
- Talking About Preemption to Different Audiences, Local Solutions Support Center
- Preemption & Public Health Training, Public Health Law Academy, ChangeLab Solutions
- Webinar: Preemption, Public Health, and Equity: The Search for Local Solutions, ChangeLab Solutions
- Webinar: Municipal Issues in an Era of Preemption, Stateside
- Webinar: Federal and State Preemption Basics: What every drafter ought to know, National Council on State Legislatures
- Local Solutions Support Center: a coordinating hub that provides local governments, elected officials and advocates with the strategies, tools and assistance needed to defend local democracy and discourage the use of preemption that limits the ability of cities to protect people’s civil rights, solve problems, and improve lives.
- American Heart Association Voices for Healthy Kids see Preemption Campaign Toolkit
- Association of Washington Cities "Long Live Home Rule" webpage, including a report.
- National League of Cities - Preemption Resources and Preemption 101 Fact Sheet
- National Association of Counties