In Belgium, 2 people die every hour of tobacco-related causes, and it is obvious for policy-makers that the country needs sustained and strong action to reduce tobacco use. While Belgium continues to face many challenges, including the widespread availability of new nicotine products designed to appeal to children and young people, its approach offers valuable lessons for other countries striving for a tobacco-free future.
Flavours and sleek product designs: the new frontline
According to WHO estimates, 179 million adults and 4 million adolescents aged 13–15 currently use tobacco in the WHO European Region. The World No Tobacco Day 2025 campaign – “Unmasking the appeal” – draws attention to the flavours and product design that are used by the tobacco and nicotine industry to manipulate consumer perception and make tobacco and nicotine products more attractive, especially to youth. In Belgium, this issue is front and centre for health authorities, says Dr Eline Remue, policy officer on tobacco and nicotine working at the Belgian health ministry.
The country is witnessing firsthand how product design and flavours make nicotine products increasingly appealing to youth. While tobacco and nicotine industry marketing often position e-cigarettes as cessation aids, their actual reach is skewed toward young non-smokers. “No adult trying to quit smoking seeks out bubble gum or unicorn flavours,” says Eline.
To respond, Belgium has banned disposable e-cigarettes since 1 January 2025 and continues to inspect retailers through mystery shopping; yet violations remain. A recent school-based investigation revealed that the majority of collected vaping devices were illegal – either banned disposables, or products with high nicotine levels. In addition, some vapes that were taken from students also contained illegal drugs.
To combat this, Belgium is now exploring additional restrictions on flavours, following examples from Denmark, Finland and the Netherlands. A point-of-sale display ban and a ban on online sales are already in place.
Policy insight: law on “attractive functionalities”
Belgium’s legislation includes a particularly valuable provision: a ban on devices with “attractive functionalities”. This broadly worded measure has proven powerful in practice, allowing for swift enforcement against gimmick-heavy products, such as vape pens with games, lights or even call functions. These so-called “child-attracting” devices disguise their true purpose: delivering nicotine to the body – a highly addictive substance that can negatively influence brain development in children and youths and can lead to lifelong dependence.
But even this seems insufficient in the ever-shifting political and economic environment. Enforcing the national ban on online sales remains complex due to the nature of the internet and the legal grey zones that enable illicit tobacco trade to flourish. “We take websites down, and they come back 2 days later,” Eline explains.
For Belgium, and other countries of the European Union (EU), stronger action from the European Commission is crucial. These efforts can close legislative gaps in the fast-evolving market and harmonize regulations across the EU, supporting international collaboration and enforcement, she adds.
Industry interference: getting ready for the pressure
In addition, Belgium health policies are facing strong resistance from big tobacco companies. Significant new regulation is often attacked by the tobacco industry, which has filed more than 20 legal cases to date, targeting Belgian tobacco control measures.
Preparing for these challenges requires resources and political resilience, which are not always guaranteed, adds Eline.
Building political momentum: what is needed?
Belgium’s 2022 strategy toward a smoke-free generation reflects consensus-building across its complex political system, with 24 cabinet representatives at the drafting table. “The downside was time and compromise,” says Eline, “but the result is broad support.”
Another crucial element is finding a policy champion. The current Belgium Minister of Social Affairs and Public Health has been prioritizing nicotine prevention. “It really helps to have someone who wants to lead the battle,” says Eline. Such leadership, she admits, cannot be taken for granted.
Tobacco use is not the norm
Eline suggests that the key to building a tobacco-free future is to look deeper into European culture. It is time for the WHO European Region to shift its cultural norms, which have tolerated tobacco use in all its forms for far too long.
“You can’t just focus on product regulation,” says Eline. “You have to work on all areas of tobacco control, including denormalization of tobacco and nicotine use to shift public perception.”
A new smoke-free outdoor policy – covering playgrounds, zoos and sports grounds – entered into force this year, driven by public health priorities.
Strong partnerships with nongovernmental organizations help reflect public concerns and create a wide public discussion on tobacco. These groups, including the Belgian Foundation against Cancer and Alliance for a Smoke-Free Society, offer scientific insights, grassroots energy and campaign infrastructure to back effective tobacco control initiatives.
Aim high – act now!
Belgium’s experience shows that no single measure will end tobacco use, but every step in the right direction matters. From regulatory reforms to grassroots advocacy, collaboration and long-term consistency are important.
“We need to aim high – go for the horse,” Eline says with a smile. “And celebrate even if you only get the chicken.”
Her advice to countries is not to wait for initiatives at the EU level and implement any available steps towards a tobacco-free future now. “Look at other countries’ experiences and adapt those regulations which have proven effective. Whether it’s product regulation, such as flavour bans and packaging requirements, or denormalization measures, such as the introduction of smoke-free environments, early action at the national level can build momentum for a tobacco-free future for all,” says Eline.
As part of the WHO Global Action Plan for the Prevention and Control of Noncommunicable Diseases, countries around the world, including Belgium, have committed to reducing tobacco use by 30% by 2025. The country is also a party to the WHO Framework Convention on Tobacco Control, providing the foundation for countries to implement and manage effective tobacco control measures and prevent addiction, while saving lives and improving global health.