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Nicotine pouches gaining attention among law-makers around the world

By EcigIntelligence 23rd January 2025 5 Mins

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Increasingly tight regulation of disposable vapes was the subject of much news coverage in 2024 – not least in the UK, of course. But another rapidly-growing category of nicotine product is now also gaining attention among law-makers around the world: nicotine pouches.

A major concern is the growing appeal of nicotine pouches – which contain nicotine, but no tobacco – among younger age groups. Like disposable vapes, pouches are often sold in eye-catching packs, and they come in a variety of flavours such as mint, berry and citrus. Critics argue that these features make them especially appealing to teenagers and young adults, potentially leading to nicotine addiction in groups that might otherwise avoid tobacco products. Public health organisations in Europe and North America are warning about the marketing tactics of some companies, too.

So far the pouch debate has been relatively quiet in the UK, certainly compared with the US and even with Europe.

And, indeed, usage of pouches in the UK lags far behind both vaping and smoking: shortly before we went to press, new research was published by the Institute of Psychiatry, Psychology & Neuroscience at King’s College London, in partnership with Action on Smoking and Health (ASH), which found that only about 1% of Brits were current pouch users, although 5.4% had used a pouch at some point. The survey covered 11-to-18-year-olds as well as adults. Our own estimate at TobaccoIntelligence puts the percentage for adults slightly higher, but in much the same ballpark.

This number does not have to grow very far, however, for pouches to start attracting some of the same concern – many would say exaggerated concern – that vapes have: this is exactly what has happened in the US. Moreover, with substantial new vape regulation already imminent for the UK, policy-makers and pressure groups alike may feel they have more time to spare on the so far relatively minor issue of pouches.

There is limited regulation for nicotine pouches to date, although they are covered by parts of the Tobacco and Vapes Bill. But that could change.

However, there is not a clear, widely adopted model to follow for their regulation: as a relatively new product, pouches have often occupied an ambiguous position. In some countries they are classified as food products, while others treat them as medicinal or tobacco items. This fragmented approach internationally creates confusion for manufacturers, consumers and regulators.

Environmental concerns also warrant attention. While nicotine pouches do not generate the same amount of waste as disposable vapes, they are still single-use products. Typically made of synthetic fibres and chemical additives, they can contribute to microplastic pollution, and packaging can also create waste. As governments continue to prioritise sustainability, stricter rules on the materials used in nicotine pouches may arise, or even bans on certain types of packaging.

Looking ahead, nicotine pouches could be the target of heavier regulation, similar to that often found for disposable vapes. Governments, including the UK’s, could impose restrictions on flavours to reduce the appeal of pouches to young users. They may also require clearer, more prominent labelling to warn of the health risks associated with nicotine. Some countries are proposing very low levels of nicotine content, such as Luxembourg (0.048 mg per pouch) and Spain (0.99 mg per pouch).

Tax increases on nicotine pouches could also be a possibility, in order to deter use among price-sensitive groups, such as teenagers. Additionally, environmental initiatives may lead to mandatory recycling programmes or biodegradable materials. All these things are just as possible in the UK as in the EU and elsewhere.

The core question remains whether policy-makers will see nicotine pouches as part of the problem or part of the solution. Advocates of harm reduction stress that nicotine pouches are a safer alternative for smokers attempting to quit. They warn that excessive restrictions could stop innovation, and discourage smokers from switching. On the other hand, there is a worry that not regulating them adequately could lead to some young people starting nicotine use.

We have recently seen that regulators even in the comparatively soft-touch UK are willing to take decisive action on environmental and public health concerns, and if nicotine pouches continue to rise in popularity – especially among younger users and non-smokers – they may become the next target of regulatory action.

Our graphic this month comes from a survey we conducted a couple of years ago, and illustrates the main reasons consumers turn to nicotine pouches. Of course, some of those reasons may have changed by now, but it’s interesting that even in 2023 – when they were much less visible in the market – the biggest single reason for trying pouches was seeing someone else using them.

Barnaby Page and the ECigIntelligence/TobaccoInbtelligence team

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Topics: Nicotine Pouches, Sustainability
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EcigIntelligence

ECigIntelligence is the leading provider of detailed global market and regulatory analysis, legal tracking, and quantitative data for the e-cigarette, heated tobacco and combustible-alternatives sector worldwide.