Tobacco smoking is still a major habit across the EU, with roughly 24 % of adults and 18 % of 15‑year‑old adolescents reporting smoking. The number of young smokers aged 15-24 is particularly concerning, with 24.1% of individuals aged 20-24 reporting smoking at least occasionally, compared to 14.8% of those aged 15-19. Electronic cigarettes and heated tobacco products have become increasingly popular since 2019 and are now reshaping the EU tobacco product landscape. Their growth is most noticeable among people under 30 years of age.

On the 2^nd of April 2026, the European Commission published its evaluation of the EU tobacco control framework. Its findings show that EU rules have contributed to a significant decline in smoking and tobacco-related deaths. Nevertheless growing challenges, linked to the rapid emergence of novel tobacco and nicotine products, particularly among young people, are also acknowledged. 

Research work from the Joint Research Centre, combining new data generation with syntheses of existing knowledge, underpinned the Commission’s Staff Working Document. The evaluation identifies the rise of e-cigarettes, heated tobacco products and nicotine pouches, as introducing new public health concerns and as a gateway to nicotine addiction and in some cases, traditional smoking, in particular for younger generations. 

The recent JRC Science for Policy Reports provided crucial scientific support for these findings, particularly on the health-related costs of tobacco use, the health impacts of novel tobacco and nicotine products, and on the trends and patters of use of tobacco and nicotine products in the EU. 

The evaluation concludes with a need to adapt the regulatory framework, proceeding with an impact assessment and proposal for a revision of the tobacco control framework.

In this context, the JRC also analysed the responses of a targeted Member State consultation on the administrative efforts and costs related to the implementation of the current EU tobacco control framework, providing key evidence on the efficiency and effectiveness of the legal framework to support the evaluation.

Specific JRC findings are outlined below.

E-cigarettes are especially popular among young people

The consumption of novel and emerging tobacco and nicotine products rises steeply among those younger than 30.

In 2023, young adults in their twenties reported the highest daily or occasional use of e-cigarettes and nicotine pouches of any age group. 

Heated‑tobacco products are also popular for daily or occasional consumption in the 20‑24 and 25-29 age groups, though slightly less so than among 30‑44‑year‑olds.

For many teenagers, e‑cigarettes are the first product they use regularly, with roughly one‑in‑five 15‑19‑year‑olds and more than one‑in‑ten 20‑24‑year‑olds who began with e‑cigarettes rather than cigarettes or other traditional tobacco products.

How safe are these smoke-free products?

The relative novelty of these products makes it difficult to assess long‑term health effects, as they have not been on the market long enough. Nevertheless, current evidence points to several concerns:

• E-cigarettes are related to adverse short- and medium-term outcomes, mainly in the cardiovascular and respiratory systems, possible capacity of producing tumors and adverse outcomes in pregnancy. They can cause addiction and dependence and seem potentially less harmful than conventional tobacco. However, concerns surround the inhalation of nicotine, together with metals and other substances with unclear toxicity. 
• Heated-tobacco products have been associated with similar cardiovascular and respiratory risks, as well as potential developmental and pregnancy harms. Their aerosol contains substances with unclear long‑term toxicity.
• Nicotine pouches currently lack robust evidence on health effects because they have been available only recently. They appear to deliver fewer toxicants than smoked products but still pose a risk due to their nicotine content. 

Tobacco use impact on our healthcare systems

Traditional tobacco use already costs the EU roughly 80.7 billion euro each year – half in direct health‑care expenses and half in lost productivity and informal care. Chronic Obstructive Pulmonary Disease has the highest weight on the total (33.4% of direct costs), followed by diabetes (21.7%) and ischemic heart diseases (8.8%). Health‑related tobacco costs vary considerably across Member States. 

On average in the EU, direct tobacco use-related healthcare costs represent 2.5% of total healthcare expenditure. It was not possible to analyse healthcare costs associated with novel and emerging tobacco and nicotine products due to insufficient evidence and relatively short follow-up time. Eurobarometer data (2023) reveal that the percentage of smokers who use them without using traditional tobacco is rather small (less than 5% for e-cigarettes and heated tobacco products). However, as the use of e-cigarettes by young people increases the likelihood of using other tobacco products, this could further affect future health-related tobacco costs. 

Full citation of the reports:

Perez-Cornago, A., Sarasa-Renedo, A., Jarach, C., Wollgast, J. and Maragkoudakis, P., Health outcomes associated with the use of e-cigarettes, heated tobacco products, and nicotine pouches, Publications Office of the European Union, Luxembourg, 2026, https://data.europa.eu/doi/10.2760/0061469, JRC146139. https://publications.jrc.ec.europa.eu/repository/handle/JRC146139

Salari, P., Maragkoudakis, P.-A. and Wollgast, J., The health-related costs attributable to tobacco in the EU, Publications Office of the European Union, Luxembourg, 2026, https://data.europa.eu/doi/10.2760/5833286, JRC146176. https://publications.jrc.ec.europa.eu/repository/handle/JRC146176

Berlingieri, F., Casabianca, E. and Vlachos, S., Trends and patterns of use of tobacco and nicotine products in the EU, Publications Office of the European Union, Luxembourg, 2026, https://data.europa.eu/doi/10.2760/3233096, JRC143862. https://publications.jrc.ec.europa.eu/repository/handle/JRC143862