it wont ever work, they clearly havent thought this through at all. imgaine this scenario....
"son, im going to the shops to pick up some ciggies for your gran in the home.. would you like me to get you some as well? i know its a struggle with both your legs in plaster after having your legs broken by some nigerian gang members who were after your bank details"
"yes please mum"
20 mins later..
"son.. they said i needed a licence to buy em. so u need to go yourself. dont worry though, me and your dad will carry you"
"what about gran?"
"guess we'll just have to wheel her bed to the corner shop near the home.. and make sure her nurse comes as well, just in case"
At the shop..
"oh look, there's an australian fella in front of us, must be on holiday"
"alright cobber!! give me 20 marlboro's shopkeep"
"do you have a licence?............."
seriously tho.. 10 a year fee to go to the nhs? what about the admin costs and checks? when they do the figures theyll see itll cost LOADS more to do than 10 quid.. and will be scrapped.. or they'll raise the fee.. sigh