The World Health Organization has officially turned its attention to nicotine pouches. 

On May 15, ahead of World No Tobacco Day, the WHO released its first global report focused specifically on oral nicotine products, warning that rapid growth and inconsistent regulations could increase youth exposure to nicotine worldwide. 

According to the report: 

• Global nicotine pouch sales surpassed 23 billion units in 2024  
• The category is projected to reach nearly $7 billion in value in 2025  

Governments should consider stronger restrictions involving:  

• Flavors  
• Nicotine strength limits  
• Advertising restrictions  
• Age-verification requirements  
• Packaging and labeling rules  

The WHO also repeated its long-standing position that nicotine itself is “highly addictive and harmful” while accusing manufacturers of using tactics designed to appeal to younger consumers. 

But the report is already generating significant criticism from harm reduction advocates and public health experts who argue the organization continues failing to distinguish between combustible cigarettes and lower-risk nicotine alternatives. 

The Nicotine Pouch Market Continues Expanding 

There is no question nicotine pouches have become one of the fastest-growing segments in the nicotine industry. 

Driven by adult consumers seeking: 

• Smoke-free alternatives  
• Tobacco-free options  
• Discreet nicotine formats  
• Modern flavor profiles  

…the category has expanded rapidly across Europe and the United States. 

Unlike cigarettes, nicotine pouches involve: 

• No combustion  
• No smoke  
• No inhalation  
• No tobacco leaf in many products  

That distinction is central to the ongoing debate surrounding harm reduction. 

WHO Pushes for Stronger Restrictions 

In its report, the WHO urged governments to implement tighter oversight and stronger regulations as the market continues growing. 

Among the recommendations: 

• Restricting flavors  
• Limiting nicotine concentrations  
• Tightening marketing rules  
• Expanding youth access prevention measures  
• Requiring clearer product labeling  

The organization framed these recommendations primarily around concerns involving youth experimentation and nicotine dependence. 

Critics Say WHO Continues Ignoring Relative Risk 

One of the strongest responses came from Dr. Marina Murphy, senior director of scientific affairs at Haypp. 

Murphy argued the WHO report fails to adequately distinguish between combustible tobacco products and significantly lower-risk nicotine alternatives. 

She pointed to countries including: 

• Sweden  
• The United Kingdom  
• Germany  
• The United States  

…as examples where regulators have implemented product standards, manufacturing requirements, and age restrictions while still preserving adult access to smoke-free nicotine alternatives. 

Murphy also highlighted toxicological comparisons showing nicotine pouches may resemble nicotine replacement therapies more closely than combustible tobacco products from an exposure standpoint. 

The Sweden Example Continues Drawing Attention 

The criticism surrounding the WHO report comes at a time when Sweden continues receiving global attention for its declining smoking rates. 

Sweden has one of the lowest smoking rates in Europe, a trend many researchers partially attribute to widespread use of smoke-free nicotine alternatives including: 

• Snus  
• Nicotine pouches  
• Other non-combustible products  

For harm reduction advocates, Sweden has become one of the clearest real-world examples that adult access to lower-risk alternatives may accelerate smoking decline. 

The Core Debate: Nicotine vs. Combustion 

At the center of this conversation remains a major public health disagreement: 

Should all nicotine products be treated essentially the same? 

Or should regulators differentiate between products based on relative risk? 

Many harm reduction experts argue the overwhelming health risks associated with smoking come primarily from combustion — the burning of tobacco — rather than nicotine itself. 

That does not mean nicotine is risk-free. 

But critics of the WHO say policies that fail to distinguish between combustible cigarettes and non-combustible alternatives risk discouraging smokers from switching to potentially lower-risk products. 

A Growing Divide in Global Tobacco Policy 

The WHO’s report also highlights a growing divide in international nicotine policy. 

Some countries continue embracing strict prohibition-focused approaches toward alternative nicotine products. 

Others are increasingly adopting more nuanced regulatory frameworks designed to: 

• Restrict youth access  
• Maintain manufacturing standards  
• Preserve adult consumer access  
• Encourage movement away from combustible cigarettes  

That divide is likely to become even more pronounced as nicotine pouch adoption continues growing globally. 

Final Thoughts 

The WHO’s first global nicotine pouch report signals that oral nicotine products are now firmly part of the international public health conversation. 

But the reaction to the report also shows how divided that conversation has become. 

Critics argue the WHO continues treating all nicotine products through the same ideological lens despite growing evidence that smoke-free alternatives may play a meaningful role in reducing cigarette smoking. 

Meanwhile, regulators worldwide are left balancing two competing priorities: 

Preventing youth use while determining how alternative nicotine products fit into long-term harm reduction strategies for adults. 

And as nicotine pouch markets continue expanding, that debate is only getting louder.