Estonia's plan to tighten nicotine rules sparks black-market concerns

Planned restrictions on nicotine products in Estonia have triggered disagreements. The Ministry of Justice and Ministry of Social Affairs argue the measures would reduce youth consumption, while others warn they could encourage the growth of an illegal market.

The Prosecutor's Office noted in a letter to the Justice Ministry that it is unclear whether compliant alternative products will reach the market in time. This could push consumers toward illegal or unregulated nicotine products that may pose greater health risks. There is also concern that young people might turn to other addictive substances — cigarettes, alcohol, cannabis or black-market drugs — if nicotine products become harder to obtain.

The Ministry of Social Affairs responded that such "substitution effects" are not supported by research. According to the ministry, youth risk behavior is more strongly influenced by peers, family, mental health, socioeconomic conditions, product availability and marketing. Studies also show that when a nicotine product becomes less accessible or disappears from the market, its use often declines, especially among youth who do not consume nicotine regularly.

The Interior Ministry warned that detecting black-market reselling will be difficult if individuals buy large quantities abroad and resell them in Estonia. Products can be moved through parcel lockers, making violations hard to trace. Another issue involves foreign sellers: if an online shop in another country ships products to Estonia, it is unclear how Estonia could take action against that seller.

The Consumer Protection and Technical Regulatory Authority noted that the market already offers a workaround to e‑cigarette flavor restrictions: water‑pipe vapor‑stone flavorings. These contain the same base components as e‑liquids and can be used as e‑cigarette liquid or additives, yet they are not legally classified as e‑cigarette liquids.

Aive Telling, head of environmental health policy at the Ministry of Social Affairs, acknowledged that new restrictions could lead to black‑market growth, but said it is not inevitable. "The black market requires constant active attention," she said. Telling noted that young people are starting to use nicotine products at increasingly early ages — experimentation now begins at about age 11, compared to 15–16 previously. The most common entry products are nicotine pouches and e‑cigarettes.

Currently, just over 20% of nicotine products on the market meet the new requirements. About 60% would need their composition changed, and nearly one‑fifth would have to be removed from sale. The new rules are planned to take effect in 2028. Several European countries have tightened nicotine‑product regulations in recent years, including Belgium, the Netherlands, Ireland and Finland.