Example with a context:
The shooting comes at a tense time. Police in New York are being criticized for their tactics following the chokehold death of Eric Garner, who was stopped by police on suspicion of selling loose, untaxed cigarettes. Amateur video captured an officer wrapping his arm around Garner's neck and wrestling him to the ground. Garner was heard gasping, "I can't breathe" before he loses consciousness and later dies.
What does loose cigarettes really mean?