The EU’s inner market for nicotine pouches has become a hodgepodge of inconsistent, ad hoc rules often lacking scientific basis. How did we get here, and what could policymakers across the EU learn about nicotine pouch regulations from the example of Sweden? 

Sweden has a long history of sensible tobacco regulation that has accommodated less harmful alternatives and resulted in tangible public health gains. 

Despite having overall nicotine consumption levels similar to other European countries, Sweden’s rates of lung cancer and other tobacco-related diseases are among the lowest in the EU, most notably among men. 

While many EU countries continue to struggle with how to classify and control new, low-risk products like nicotine pouches, Sweden boasts a strong regulatory framework that ensures consumer safety while maintaining accessibility for adult users.  

How did Sweden achieve this? And what lessons can other European countries learn from its approach? 

A natural extension of harm reduction 

Snus has long played a crucial role in reducing smoking rates in Sweden, despite the country not formally embracing harm reduction as a public health strategy until 2024. 

Nevertheless, Sweden’s long history with snus, a smokefree oral tobacco product, helped paved the way for a rational regulatory approach to nicotine pouches.

Thus when tobacco-free nicotine pouches emerged on the market in 2016, Swedish consumers were well-positioned to integrate them into its existing framework. 

“We already had the experience of regulating a product like snus, which is well-documented as a significantly less harmful alternative to smoking,” says Patrik Strömer, Secretary-General of the Association of Swedish Snus Manufacturers.  

“Applying a similar logic to nicotine pouches made sense—regulating rather than banning. But it took several years for the government to catch up with the agreement between manufacturers that was already in place.” 

Industry self-regulation paved the way 

Before formal regulations were put in place, Swedish manufacturers took proactive steps to self-regulate nicotine pouches. Many companies voluntarily adopted policies including:  

• Age restrictions – limiting sales to individuals 18 years and older. 
• Health warnings – labeling products with information on nicotine’s addictive nature. 
• Marketing guidelines – ensuring advertising did not target minors or non-users. 

By establishing these responsible practices early on, the industry helped shape the discussion around regulation and demonstrated a commitment to consumer protection. 

“It was clear that we needed responsible rules in place from the beginning,” Strömer explains.  

“The industry didn’t wait for legislation—we took action to prevent youth access and ensure high product standards.” 

2022 legislation: key steps and milestones 

Recognising the rapid growth of nicotine pouches and their potential as a harm-reducing alternative to smoking, the Swedish government finally launched a public inquiry in 2020.  

The resulting legislation, the Act on Tobacco-Free Nicotine Products, came into force on July 1, 2022. 

The law codified into Swedish law much of what the industry had been doing in practice for years, including: 

• Minimum age of 18 for purchasing nicotine pouches. 
• Marketing and advertising restrictions to prevent targeting minors. 
• Health warning requirements on packaging. 
• Product notification obligations – manufacturers must inform the Public Health Agency of Sweden about new products before they are introduced to the market. 

Sweden’s regulation struck a balance between consumer protection and market viability. It also ensured that nicotine pouches remained available as an alternative to combustible tobacco products. 

“This is a classic example of pragmatic policymaking,” says Strömer.  

“Sweden didn’t panic and ban nicotine pouches outright, as some other countries have done. Instead, we asked: How do we regulate this in a way that benefits public health?” 

The secret of Sweden’s success 

While Sweden has successfully implemented a clear regulatory framework for nicotine pouches, many EU nations continue to grapple with classification and control measures. 

In some countries, nicotine pouches are caught in legal gray zones, while others have opted for outright bans. 

“Many EU policymakers still see all nicotine use as evil, regardless of whether it comes from cigarettes or a far less harmful alternative,” Strömer notes.  

Strömer admits that the European Union’s snus ban has complicated efforts in other countries, but says that’s “no excuse” for failing to implement policies that could save smokers’ lives. 

“Even though Sweden has a proven blueprint for successful, pragmatic nicotine pouch regulation, policymakers in Brussels and capital cities around Europe seem unable to follow our lead. It’s simply confounding,” he says. 

Lessons for other EU countries 

Sweden’s experience provides a roadmap for other countries looking to develop rational, evidence-based nicotine regulations.  

Strömer fears that persistent moral panic about nicotine could make harmonisation across the EU’s inner market a challenge – one that could have disastrous consequences for public health. 

“If other EU nations are serious about reducing smoking-related deaths, they should look at what actually works,” says Strömer, pointing to Sweden’s low rates of smoking and tobacco-related mortality, which are among the lowest in Europe.  

“Sweden’s approach isn’t just theoretical—it has delivered real public health benefits. The rest of Europe should take note.”