Estonia welcomes the revision of the Tobacco Products Directive (2014/40/EU) to better reflect market developments and strengthen public health protection, particularly for children and young people. In Estonia, nicotine use among youth has increased rapidly, largely driven by e‑cigarettes and other novel products. More than half of pupils have tried e-cigarettes, many also smoke conventional cigarettes, indicating that novel products do not replace smoking but contribute to multiple product use. Many children have their first experience with nicotine already at the age of 11 or younger. Share of everyday users of e-cigarettes among young females (16-24 years) has increased more than 10 times in just 4 years (11,2% in 2024). 20 % of young men use nicotine pouches regularly. Tobacco and nicotine use also impose a substantial health and economic burden.
1. Broader scope
Scope of the TPD should be extended to cover all types of tobacco and nicotine products, addressing emerging products in a future proof manner. The current TPD no longer corresponds to the rapidly evolving market. This creates regulatory gaps and unequal treatment of products with similar health risks. Differentiating regulatory requirements based on product form is not justified from public health perspective. Nicotine is addictive regardless of the delivery mechanism, different regulatory regimes facilitate substitution rather than cessation. The revised TPD should include measures to address emerging products in a more dynamic manner to prevent regulatory loopholes enabling circumvention of requirements set for public health protection.
2. Reducing product attractiveness and strengthening harmonisation, including an EU-wide ban on all characterising flavours, reinforced packaging and labelling requirements.
Characterising flavours remain one of the key drivers of youth uptake. Estonia, as many other EU countries, has prohibited flavours in e‑cigarettes at national level, but divergent national approaches undermine effectiveness. An EU‑wide ban on all characterising flavours, including menthol, across all product categories is necessary to reduce initiation among minors and ensure a level playing field. The current EU procedure for determining characterising flavours is overly complex and resource‑intensive, placing a significant administrative burden on authorities and slowing down enforcement. A shift is needed from reactive assessment of characterising flavours towards a more proactive approach, for example by establishing a positive list of ingredients. Standardised packaging, reinforced health warnings and stricter regulation of misleading health-related claims are necessary across all product categories to reduce appeal and ensure consistent risk communication. Smokeless nicotine products are often marketed as less harmful or as quitting aids, yet there is no solid scientific evidence to support these claims.
3. An EU-wide ban of cross‑border distance sales
An EU‑wide ban on cross‑border distance sales of tobacco and nicotine products is essential to prevent access by minors and strengthen ensure effective enforcement. Without harmonised EU rules, minors can easily obtain these products via cross-border e-commerce (89% of young people consider access to nicotine products to be easy).
4. An urgent need to address the environmental and health risks of disposable e-cigarettes either through a ban or strict EU-wide restrictions.
Disposable e-cigarettes pose significant health and environmental risks, generating hazardous waste containing lithium batteries and nicotine residues. They are highly attractive and easily accessible to young users due to their colourful design, sweet flavours and low cost. The EU should introduce a ban or strict EU-wide restrictions, including fiscal measures, to reduce their environmental impact, accessibility and attractiveness.
VASTUSELE LISATAVAD DOKUMENDID:
1) Tobacco and Nicotine Products Use Study (Institute of Baltic Studies, 2023):
Tubaka- ja nikotiinitoodete tarvitamise uuring 2023.pdf
Tobacco and Nicotine Products Use Study | IBS
2) Health Behavior among Estonian Adult Population Study (2024):
https://www.tai.ee/sites/default/files/2025-04/tku2024_kogumik_29apr2025_final.pdf
3) Health Behaviour in School-aged Children (HBSC study, 2024):
https://tai.ee/sites/default/files/2024-01/TAI_Eesti_kooliopilaste%20tervisekaitumine.pdf
4) Use of nicotine products among youth in the Nordic and Baltic countries – An overview (Nordic Welfare Centre, 2025)
Use of nicotine products among youth in the Nordic and Baltic countries - An overview | NVC
5) Alkoholi ja tubakatoodete tarvitamisega seotud tervisekaotus ning tervishoiukulud Eestis 2022. aastal (2023)
https://sm.ee/sites/default/files/documents/2024-03/Alkoholi%20ja%20tubakatoodete%20tarvitamisega%20seotud%20tervisekaotus%20ja%20tervishoiukulud%20Eestis%202022.%20aastal.pdf