The latest Empty Pack Survey has found that over half (57%) of cigarette packs surveyed in Ireland in 2026 were non-Irish duty paid (NIDP) which are tobacco products, legal and illegal, that do not have Irish tax paid on them.
Of this total, 14% were illegal counterfeit cigarettes which are manufactured without authorisation from the owners, with the intent to deceive consumers and to avoid paying tax.
The survey was carried out on behalf of JTI Ireland, and includes both illegal counterfeit cigarettes and legal products purchased abroad that do not have Irish tax paid on them. Since 2018, the Irish exchequer has lost approximately €5 billion in tax revenue to NIDP products including around €1 billion last year alone.
According to Government figures[1] €758 million was lost specifically to illegal tobacco products.
Trends Across the Country
There were significant differences across the country: Galway had the highest rate in Ireland where three quarters (75%) of the packs surveyed had no Irish tax paid on them. This was followed by Swords at two thirds (66%). In terms of counterfeit cigarettes specifically, Wexford was worst affected with a quarter (25%) of packs surveyed being illegal counterfeit products, followed by Ennis (20%) and Waterford (19%).
Commenting on the findings, Daan van Hamersveld, Director of Corporate Affairs and Communications at Japan Tobacco International (JTI) Ireland said:
“These findings show a significant issue with illegal counterfeit cigarettes in Ireland. The Government’s own figures show that illegal tobacco products cost the state over €750 million in lost taxes in 2025 alone,[2] while at the same time undermining legitimate retailers and providing income for organised crime groups.
“When legal non-Irish duty paid products are included, retailers across the country are losing out on over €1 billion in lost turnover annually as smokers increasingly turn to lower priced illegal and other NIDP cigarettes. At the same time, the smoking rate has remained stable since 2019, suggesting smokers are simply seeking alternative channels in response to tax increases rather than quitting.[3]
“We would urge the Government to pair a more moderate approach to excise increases with stronger enforcement action against the criminal networks behind cigarette smuggling and counterfeiting to avoid further exacerbating this already serious situation.”
