2025 Regulatory Outlook for Vaping and the Wider Reduced Risk Products Category

The regulatory outlook for vaping and the wider Reduced Risk Products (RRP) category in 2025 is poised to be shaped by evolving public health priorities, government policies, and shifting consumer perceptions.
 
At Plxsur, we believe science and evidence based regulation can be a force for good within the sector and one which not only safeguards society, but also creates opportunities to advance tobacco harm reduction. Throughout 2025 there are some key global trends and developments that we expect to see, including evolving regulation across major markets, a continually developing stance on reduced risk products, divergent regional policies and a heightened focus on youth protection.
 
We have also seen the unintended consequences of poorly thought out regulations which have resulted in illicit trade and a lack of enforcement resource to restrict illegal sales and support legitimate companies. We would hope that regulators will consider such consequences when debating the implementation of further regulation and hold tobacco harm reduction and the needs of smokers wishing to quit combustible cigarettes first and foremost. We are already seeing this in practice in Czechia, where regulators recently backed away from a full flavour ban in favour of research focused on restricting only those flavours attracting youth. We hope to see this decision to implement appropriate regulation mirrored across other global markets.
 
1 – Stricter Regulations Across Major Markets
 
In terms of flavour restrictions across markets, the term “flavour ban” often serves as a catch-all term, but it is important to note that it encompasses several distinct regulatory approaches. These include ingredient restrictions, where only certain components are permitted; outright bans on flavours deemed to appeal to youth, such as candy or confectionery; and descriptor bans targeting misleading names like “cotton candy” or “bubble gum”, which are again, seen as being attractive to youth. Countries across the EU, US, and parts of Asia are expected to consider restrictions on flavoured e-liquids, potentially linked to youth attractiveness, with many awaiting the outcomes of the EU Tobacco Products Directive (TPD) review in 2025.
 
Additionally, governments are increasingly considering the implementation of nicotine caps, such as those present in the EU and UK. These involve stricter limits on nicotine concentrations in vaping products and may also start restricting levels in other novel nicotine products to mitigate the risk of addiction. In Malaysia, new regulations have included nicotine caps and the government is planning to align its regulations with similarities to the EU TPD. This approach could set a precedent for other nations, potentially influencing the wider market for novel nicotine products.
 
Turning to advertising restrictions, the EU’s Tobacco Advertising Directive (TAD) is expected to impact cross-border advertising from 2025. Simultaneously, many countries are likely to align advertising rules for vaping products with those for cigarettes, thereby focusing on marketing channels appealing to youth.
 
Another change we are seeing is with regards to standardised packaging, featuring health warnings similar to those mandated for cigarettes, which could become a global norm for packaging and labelling regulations on vaping products. Australia and Canada have already implemented such measures, and others may follow suit.
 
Higher excise taxes and pricing controls on vaping products are likely to emerge to discourage uptake from non-users and youth as governments seek parity with traditional tobacco products. In the EU, this shift is expected to coincide with the Tobacco Excise Directive (TED) revisions in 2025, further increasing the cost of vaping products. However, regulators need to consider the unintended consequences of this approach as the pricing differential is a significant factor in driving smokers to reduced risk products.
 
2 – Evolving Stance on Reduced Risk Products (RRPs)
 
There is likely to be a requirement for more rigorous scientific evidence from regulatory agencies including the U.S. Food and Drug Administration (FDA), to substantiate harm reduction approaches. This ongoing trend will accelerate the need for companies to invest significantly in research to validate their products’ benefits and safety profiles.
 
There is also expected to be differentiation in reduced risk product regulation, with distinct regulatory pathways for products like heated tobacco and nicotine pouches which reflect their unique risk profiles. The EU’s TPD review will likely scrutinise novel nicotine products more closely, potentially including synthetic nicotine and nicotine analogues.
 
3 – Divergent Regional Policies
 
Across the globe, we are seeing differing regional policies with regards to vaping regulation. In Europe, the EU’s upcoming review of the TPD could result in stricter rules being enforced for RRPs, particularly with regards to emerging Novel Nicotine Products, such as pouches. Additionally, we also expect to see revisions to the Tobacco Excise Directive (TED) and Tobacco Advertising Directive (TAD), although the latter will primarily impact cross-border marketing.
 
In the North American market, the US FDA is expected to maintain rigorous enforcement of its Premarket Tobacco Product Application (PMTA) process, potentially leading to a significantly reduced market for authorised products. Meanwhile, Canada will be an interesting market over the next year, as upcoming elections could influence regulatory policies, but provincial restrictions on flavours and advertising are likely to persist.
 
In the Asia-Pacific region, India and Thailand are expected to uphold existing vaping bans, citing concerns over youth protection and insufficient harm reduction evidence. In contrast, Malaysia is advancing towards a regulatory environment more aligned with the EU, while Indonesia plans to introduce comprehensive rules on ingredients, labelling, and advertising over the next two years.
 
While regulations vary widely across the Middle East and Africa, we have seen a general trend towards either outright bans or acceptance under strict controls, whereas open markets such as Japan and South Korea are poised for growth in segments such as heated tobacco, and are benefiting from permissive regulatory environments for those products.
 
4 – Focus on Youth Protection
 
Efforts to prevent youth access to vaping products will dominate regulatory agendas worldwide. Key measures may include stricter age verification systems and bans on disposable e-cigarettes, which remain particularly popular among younger users.
 
5 Industry-Led Initiatives
 
Self-regulation is likely to be a topic that continues to be raised as a way of supporting ethical approaches to tobacco harm reduction. The vaping industry may adopt voluntary guidelines to address youth-related concerns and adapt to evolving regulations. Emphasis will likely be placed on responsible marketing practices and innovations aimed at harm reduction. Meanwhile, advances in product innovation are expected within nicotine delivery systems, such as synthetic nicotine, analogues, and lower-risk formulations, which may outpace regulatory oversight, creating potential challenges for compliance.
 
6 – Global Harmonisation or Divergence?
 
Efforts to harmonise RRP regulations through international bodies, including WHO Framework Convention on Tobacco Control (FCTC), could gain momentum throughout 2025. However, these tend to be extremely slow in evolving and significant differences in national policies are expected to persist, particularly in emerging markets and categories, which may adopt frameworks modelled on established regulatory regimes in the EU or US.
 
7 Outlook for RRPs

 
The Reduced Risk Products category is likely to continue to grow, driven by harm reduction strategies, technological innovations and demand from smokers seeking alternatives. However, the regulatory burden is also likely to increase, requiring companies across the board to significantly increase investment in compliance. Businesses that align their strategies with public health objectives and proactively address youth vaping concerns will be better positioned to navigate the evolving landscape successfully. In 2025, balancing harm reduction for adult smokers with youth protection will remain a delicate but essential endeavour, necessitating collaboration between governments, regulatory bodies and the industry.