The European Commission's Directorate-General for Health and Food Safety (DG SANTE) published a Staff Working Document on 23 April 2026 evaluating the EU's tobacco control framework, covering the Tobacco Products Directive (TPD, 2014/40/EU) and the Tobacco Advertising Directive (TAD, 2003/33/EC) for the period 2012–2025. The evaluation concludes that the directives have been effective in reducing smoking prevalence and improving public health, but identifies significant gaps in regulating novel products such as e-cigarettes, heated tobacco, and nicotine pouches, as well as digital advertising and cross-border sales. The document, based on over 41,000 stakeholder contributions, recommends a revision to address market and technological changes, though no specific timeline is provided.
Key findings: progress and persistent challenges
The evaluation reports a decline in smoking prevalence from 26% in 2014 to 22% in 2024, and an 8.6% drop in tobacco-related mortality between 2012 and 2023, partly attributed to the existing framework. However, the surge in novel products has raised concerns: 12% of 15–24 year-olds now use e-cigarettes, and youth uptake of heated tobacco and nicotine pouches is rising. The current rules do not adequately cover these products, nor do they address digital advertising or cross-border online sales, which have expanded rapidly.
Policy orientations and trade-offs
The evaluation highlights a tension between maintaining the internal market for tobacco products and enhancing public health protection, particularly for young people. Stronger measures on novel products—such as flavour bans, stricter advertising restrictions, and higher taxes—could reduce youth uptake but may face pushback from industry and some member states concerned about market fragmentation. Conversely, weaker regulation could undermine health gains and increase health costs. The document also notes the need to balance EU-level harmonisation with national flexibility, as some member states have introduced stricter national rules.
Impact on stakeholders
- Tobacco manufacturers and retailers: Would face new compliance costs and potential market restrictions, especially for novel products. The evaluation suggests extending rules to cover all nicotine-containing products, which could reduce sales of e-cigarettes and heated tobacco.
- Public health authorities: Would benefit from updated tools to curb youth smoking and novel product use, but may need additional resources for enforcement.
- Young people (15–24): Would be better protected from targeted digital advertising and flavoured products, reducing initiation risks.
- EU consumers: Would see continued decline in smoking-related harm, but adult smokers using novel products as harm reduction tools may face reduced access if restrictions are tightened.
Institutional follow-up
The evaluation is a preparatory step for potential legislative revision. The Commission is expected to use the findings to draft a proposal to update the TPD and TAD, which will then be subject to negotiation by the European Parliament and the Council. The process may take several years, with stakeholders likely to lobby on key issues such as flavour bans and digital advertising rules.