EU to Abstain from WHO Tobacco Treaty Vote Amid Deep Internal Split

Key Points

• Date & Venue: November 17–22, Geneva, Switzerland；
• Agenda Focus: Review of Articles 9 and 10 on product regulation and emissions disclosure；
• EU Decision: Abstention due to failed consensus under the Danish EU Council Presidency；
• Divisions:
• Progressive bloc (France, Ireland, Finland) backs strict rules including flavour bans and plain packaging；
• Cautious bloc (Germany, Greece, Sweden, Eastern Europe) advocates moderation and harm reduction.
• Background: A leaked Oct. 7 EU draft proposed possible bans on vapes, heated tobacco and pouches, sparking backlash;
• Expert Warning: Overregulation may push users back to cigarettes or illicit markets.

2Firsts — November 18, 2025 — According to Brussels Signal,the European Union will not participate in the upcoming vote at the 11th session of the WHO Framework Convention on Tobacco Control (FCTC COP11), which takes place in Geneva from November 17 to 22. The decision follows months of internal discord among EU member states over how to regulate tobacco and emerging nicotine products.

COP11 brings together representatives from 183 signatory nations to assess progress and negotiate updates on tobacco regulation, illicit trade and new nicotine alternatives such as e-cigarettes and heated-tobacco products. At stake are revisions to Articles 9 and 10 of the convention, which deal with tobacco contents and emissions disclosure — both deferred from COP10 in Panama due to lack of consensus.

Under Denmark’s rotating presidency, the EU sought to forge unity but ultimately failed. Insiders blame the European Commission’s uncompromising position seeking to extend restrictions beyond traditional cigarettes to all nicotine products, including those used for cessation and harm reduction.

Member states have split into two camps. France, Ireland and Finland are pushing for ambitious action such as bans on flavoured products, stricter packaging rules and filter prohibitions. Meanwhile, Germany, Greece, Sweden and several Eastern European countries advocate a more cautious approach, citing consumer choice, economic interests and harm reduction.

A leaked EU draft position paper dated October 7 outlined “strong regulation or potential bans” on vapes, heated tobacco and nicotine pouches, alarming harm-reduction advocates and triggering backlash from industry-linked groups. Experts warn that overly broad restrictions could reverse smoking declines and expand illicit markets.

The Danish presidency conceded the impasse, noting its proposed “landing zone” compromise failed to bridge entrenched positions. Similar divisions also derailed progress during COP10 last year.

Public health groups such as the NCD Alliance called COP11 a “critical moment for accountability,” warning that a weakened EU voice could embolden tobacco industry lobbying. Meanwhile, the World Vapers Alliance hailed the EU’s abstention as “a win for consumer choice,” preserving space for evidence-based rather than ideological policymaking.

Image source: Brussels Signal