On June 2, 2025, the Progressive Analytical Centre (PAC) organized the Brussels roundtable “Towards a Smoke-Free Europe: Integrating Harm Reduction into Youth-Centered Public Health Policy” in the context of the World Health Organisation (WHO) World No Tobacco Day.
The event gathered youth advocates, health experts,and policymakers including MEP Marc Angel, to discussthe mental health challenges faced by young Europeanssuch as addiction. Europe sees a growing number of vul-nerable social groups, including young people, sufferingfrom mental issues such as depression and anxiety. Suchissues are often correlated with using addictive substances,among which alcohol and tobacco. A study by PAC showsthat consuming such substances is seen by many youngpeople as a coping mechanism.
From there, participants discussed how to provide peo-ple affected by this dual disorder with the proper supportsystem to reduce its negative impacts on their lives. In par-ticular, prevention and early intervention are key to tacklethe offset of health risks. While abstinence is the idealsituation, policies should leave no-one behind. For peoplewho suffer from addiction such as long-time smokers,in addition to proper psycho-social support, regulationshould encourage healthier alternatives and discouragemore harmful behaviours.
THE MENTAL HEALTH CRISIS ANDTOBACCO EPIDEMIC
In the aftermath of the COVID-19 pandemic, the EUrealized that a large portion of its population was sufferingfrom mental health issues, which particularly affect youngpeople. On the other hand, it became clear that the crisisis correlated with a surge in the consumption of tobacco.In 2021, the EU announced its objective of achievinga “Tobacco-Free Generation” by 2040, as part of Europe’sBeating Cancer Plan.
The dominant stance on tobacco control remains a pro-hibitionist approach, where policymakers try to reduceconsumption by limiting its availability and affordability.This approach has shown its limits in the recent years.At the same time, a scientific consensus has emergedaround “harm reduction” as standard practice whenit comes to substance abuse.
EU policymakers currently discuss the place that alter-native, potentially less harmful products such as electroniccigarettes, nicotine pouches, and heated tobacco products,should have on the EU market. There is a clear need forevidence-based regulation which carefully balancesthe protection of non-smokers – especially underage andyoung individuals – with the need to empower adult smok-ers to make informed decisions that can reduce the harmto their health.
APPROACH: PRAGMATIC, PARTICIPATORY,MENTAL HEALTH-SENSITIVE
Reflecting on the recent World No Tobacco Day, MEP MarcAngel and PAC experts emphasized the importance ofa practical, realistic policy framework grounded in therealities of today’s youth behaviours and consumption pat-terns. Such framework is based on the following principles:
- Pragmatism: Recognize that some youth will use nic-otine products – policy should aim to minimize harm,not enforce purity.
- Participation: Youth are not passive targets – they mustshape solutions as informed stakeholders.POLICY BRIEF3
- Mental Health Integration: The addictive behaviourcannot be separated from the broader psychosociallandscape in which it occurs, especially when it comesto the young generation.
This integrated approach is especially critical whenconsidering the complex relationship between nicotineuse and mental health. As the Mental Health Foundationhighlights, nicotine may offer a temporary sense of relief,but it does not address the root causes of stress or anxi-ety. In fact, individuals with mental health conditions aremore likely to smoke, and abrupt cessation can exacerbatetheir symptoms. For those experiencing instability or cri-sis, quitting through willpower alone is often ineffective.This underscores the need for responsible regulationof smokeless alternatives, which can provide a safer pathfor the most vulnerable populations. Evidence-based pol-icies must therefore not only protect but also empower –offering realistic, compassionate support for those seekingto reduce harm and improve their well-being.
Jiří Sedlář, Analyst
KEY RECOMMENDATIONS
PRIORITISE MENTAL HEALTH AS A FOUNDATION FOR PREVENTION
Mental health is a vital component of a healthy and productive life. Investment in mental health promotion – particularly in schools,youth services, and community settings – should be a core element of public health strategies. Early support for mental wellbeingcan reduce vulnerability to substance use and help individuals build resilience in the face of life’s challenges.Fast-tracking the endof free allowances.
ADDRESS THE INTERPLAY BETWEEN MENTAL HEALTH AND ADDICTION
Substance use often serves as a coping mechanism, especially among young people facing stress, anxiety, or social pressures.Policies must acknowledge this fact rather than rely on abstinence-based approaches, that disregard the mental health factorsdriving substance use.
STRENGTHEN THE PROTECTION OF YOUNG PEOPLE
Tobacco is a widely consumed and harmful substance. Efforts must start early, with comprehensive, age-appropriate preventionprograms beginning in elementary school. These initiatives should go beyond simple “don’t smoke” messaging to address the broadersocial and psychological drivers of substance use, including identity formation and peer influence.Young people must be active partners in shaping the policies that affect them. Mainstreaming youth involvement in the developmentof national and EU-level health strategies is essential.
IMPLEMENT BALANCED HARM REDUCTION STRATEGIES
Harm reduction, a principle meant to accompany adult smokers towards better living conditions while managing their addiction,must be recognised as a third, equally important pillar alongside prevention and cessation. Regulatory approaches should be pro-portionate to the risks associated with different products, in order to encourage less harmful alternatives. Combustible tobaccoremains the most harmful category and should therefore be subject to the strongest restrictions and highest taxes. At the sametime, governments must prevent the marketing of nicotine products such as electronic cigarettes in any way that would be particu-larly attractive to underage individuals.A differentiated regulatory framework that reduces the availability and affordability of the most harmful products while providingsafer alternatives for adult users is key to reducing tobacco-related harm across the population, while protecting non-smokers andvulnerable groups.
PAC Policy Brief 2_2025 – EN
Autor vystudoval politologii a mezinárodní vztahy na Univerzitě Karlově. Je spoluzakladatelem a spolupředsedou organizace Můžeme!, z. s., která usiluje o propojení proevropských a hodnotově orientovaných sociálních demokratů a demokratek v Česku s cílem propagovat témata blízká progresivní evropské levici. Ve své práci se specializuje na mezinárodní politiku a sociální politiku. Je členem odborů, dlouhodobě spolupracuje s progresivním evropským think tankem FEPS (Foundation for European Progressive Studies) a je juniorním analytikem a projektovým manažerem Progresivního analytického centra (PAC).