The UK government has formally acknowledged that nicotine pouches are safer than smoking and can play a role in harm reduction for adult smokers.
At the same time, ministers warned that high nicotine strengths raise concerns about dependence, particularly among young people, and said future regulation must balance adult access with youth protection.
In correspondence with campaigners, officials from the Health Secretary’s office agreed that nicotine pouches pose a lower health risk than cigarettes and should be regulated in a way that avoids pushing adult users back to smoking.
The position marks one of the clearest statements yet from the government recognising pouches as a distinct, lower-risk alternative to combustible tobacco, with an explicit warning that poorly designed rules could undermine smoking reduction goals.
Government backs harm reduction
The exchange followed lobbying from the 20isPlenty campaign, which is calling for a 20mg nicotine strength cap on pouches, alongside strict age limits and proportionate regulation. The coalition behind the campaign includes We Vape, Considerate Pouchers, ecigclick, Planet of the Vapes and the Snus and Nicotine Pouch Users Alliance.
While ministers stopped short of endorsing a specific strength cap, they aligned with the central harm reduction case. In the letter, a Department of Health and Social Care correspondence officer wrote: “As you rightly point out, nicotine pouches are likely to pose lower health risks than smoking, because they do not involve inhaling harmful substances produced by burning tobacco, such as tar and carbon monoxide.”
The government cited findings from the Committee on Toxicity, which reviewed nicotine pouches and concluded they may reduce risks for smokers when used as intended, confirming their potential role as a harm reduction tool. Officials added that public health policy must be “evidence-based and proportionate”, setting a benchmark for any future restrictions.
Separate category under new law
Under the upcoming Tobacco and Vapes Bill, nicotine products including pouches are recognised as a separate regulatory category, distinct from both tobacco and vaping products, opening the door to tailored rules rather than blanket controls.
The government said it would “carefully consider” the scope and impact of any restrictions “to avoid unintended consequences on adult smoking rates”, accepting that clumsy regulation could push people back to cigarettes rather than support switching.
The letter also confirmed that any new rules on flavours, ingredients, packaging and display will be subject to consultation, allowing stakeholders to argue for measures that protect young people while preserving access for adults. Officials said the department is engaging with trade bodies and the retail sector to ensure regulations reflect real-world use and market conditions.
Concerns over youth use and nicotine levels
Alongside endorsing harm reduction for adults, the department warned that “due to their high nicotine content, fast absorption and their potential to be flavoured, nicotine pouches have a potential to lead to nicotine dependence”. It stressed that young people are more susceptible to the effects of nicotine and “should never use these products”.
Sales of nicotine pouches to under-18s will be made illegal under the Tobacco and Vapes Bill, which completed its committee stage in the House of Lords in November and is expected to return for report stage and third reading in early 2026.
Further research underway
The government confirmed it has commissioned further research through the National Institute for Health and Care Research, including a “living evidence map” collating international evidence on health harms, trends in use and emerging data on smoking cessation.
Officials said the findings will help ensure future regulation of nicotine pouches evolves in line with the evidence and supports the government’s wider goal of reducing smoking rates.
