Regulatory Landscape of Modern Oral Nicotine in Asia: From Total Bans to Gradual Openings

Director's Note

Rising Demand: Hundreds of millions of Asian smokers are driving rapid growth in demand for modern oral products (synthetic nicotine, nicotine pouches), which are becoming a key alternative.

Divergent Regulations: Countries’ responses differ significantly — ranging from total bans (Laos, Brunei), to pharmaceutical regulation (Japan, Malaysia), to grey areas (Cambodia, Pakistan).

Southeast Asia Comparisons:

• Strict Restrictions: Thailand, Laos, Vietnam (already fully banned e-cigarettes and heated tobacco).
• Regulatory Frameworks: Philippines (specific legislation, the most comprehensive); Malaysia (dual regulation as both medicine and tobacco).
• Grey Markets: Cambodia, Myanmar, Indonesia (ambiguous regulation or weak enforcement).

East Asia :

• Japan: Nicotine pouches fall under pharmaceutical regulation but can be imported for personal use.
• South Korea: Amending legislation to classify synthetic nicotine as tobacco.

South Asia:

• India: E-cigarettes already banned; strict regulation of nicotine pouches is expected in the future.
• Pakistan: No clear regulation; market still in its early stage.

Central Asia & Middle East:

• Total Bans: Russia, Qatar.
• Unclear Regulatory Space: Saudi Arabia (case-by-case approvals required).
• Pro-Open Approach: United Arab Emirates (approved legal sales in 2025, aligning with EU/US standards).

Future Trends: Asia may become a key market for nicotine pouches. Governments will need to balance public health goals with harm reduction needs, while companies must closely monitor regulatory developments to navigate an increasingly complex compliance environment.

Original Title: A Regulatory Journey of Modern Oral Across Asia
Author: Timothy S. Donahue
Source: Tobacco Asia

2Firsts Reposts，August 27 2025 —— It’s difficult to pinpoint an exact number, but it’s estimated that hundreds of millions of people in Asia smoke. While some Asian countries have lower smoking rates, many others have a high prevalence of tobacco use. Consumer demand for modern oral products (synthetic nicotine) is increasing on the continent as more smokers look for alternatives to combustible tobacco.

Like vaping, modern oral and nicotine pouches (including products like snus) have triggered a variety of regulatory responses across Asia, and the rules can differ significantly from one country to another. From strict bans to comprehensive regulation to unfettered access to a grey market, the regulatory environment across Asia feels like a roller coaster.

Southeast Asia

Southeast Asia is home to some of the world’s largest tobacco markets and has had mixed reactions to nicotine pouch and modern oral products. While countries like Laos and Vietnam have taken tough stances against any nicotine products, others like Malaysia and the Philippines have implemented regulated frameworks to balance public health concerns with harm-reduction policies.

Cambodia: Cambodia’s position on nicotine products, including modern oral options, remains unclear. The sale of traditional tobacco products is highly regulated, and nicotine pouch products have not yet been fully addressed in Cambodian law. The lack of clear regulations leaves the modern oral and overall nicotine pouch market in a grey area, with limited oversight and enforcement.

Indonesia: Indonesia is the largest tobacco market in Southeast Asia, and the country has taken a conservative approach to regulating modern oral and nicotine pouch products. While vaping products are regulated under the Health Law No. 17/2023 and Government Regulation No. 28/2024, like traditional tobacco products, the regulation of modern oral pouches remains unclear. Nicotine pouch products fall under the broader tobacco regulations, but there has been limited guidance specifically addressing modern oral products. The regulatory framework requires manufacturers and importers to register their products and follow nicotine content restrictions.

Thailand: Thailand remains one of the strictest countries in terms of nicotine regulation. The country banned all vaping products years ago, according to the Anti-Smoking Global Index. However, TobaccoIntelligence reported that there are no specific laws regarding nicotine pouches in the country. Modern oral nicotine pouches are legal to buy and use for personal consumption, according to media reports. The World Vapers’ Alliance states that nicotine pouches are “legally available for personal use, and you can find them in some convenience stores or order them online.”

Vietnam: In Vietnam, nicotine pouches and modern oral nicotine products are not explicitly banned, but their regulation is currently under review. Additionally, the products are not widely available, and their legal status is somewhat ambiguous, according to TobaccoIntelligence. The Ministry of Trade and Industry and the Ministry of Health are discussing the regulation of “new generation tobacco” products, which may include nicotine pouches and modern oral products. In January 2025, the country imposed a complete ban on the sale, import, and use of all vaping and heated tobacco products.

Malaysia: In Malaysia, modern oral nicotine pouches are regulated under the pharmaceutical regime, while snus-style nicotine pouches are categorized under the broader definition of tobacco products. The pharmaceutical designation suggests Malaysia may treat modern oral similarly to nicotine replacement therapies (NRTs). There’s also a possibility of future restrictions on both, but currently, specific regulations on nicotine pouches beyond the general tobacco and vaping laws are not anticipated.

Philippines: The Philippines has established a comprehensive regulatory framework for modern oral products under its 2022 Vape Regulation Act (RA 11900), which also governs vaping products. The law mandates that all nicotine pouch products be registered, display health warnings, and be sold exclusively through licensed retailers. It also oversees their import, sale, packaging, distribution, use, and advertising.

Laos: The 2021 Tobacco Control Law (Amended) enforces a comprehensive ban on novel and emerging tobacco and nicotine products, according to United Nations data. Penalties for violating tobacco control laws may include fines and possible legal action. Although the official stance is a strict ban, some media reports suggest that the products might still be available through online channels or in certain areas within Laos.

Myanmar: Myanmar’s regulatory framework does not currently cover modern oral nicotine pouches. Its tobacco control laws, including the 2006 Tobacco Control Law, mainly focus on traditional tobacco products, without a clear inclusion of snus or modern oral products. As a result, pouches are available in many tobacco shops, according to media reports.

Brunei: Nicotine pouches, including modern oral products like Zyn, are banned from sale and import in Brunei unless authorized as a medicine. Although sales and imports are forbidden, there is some ambiguity about personal use of certain nicotine products, especially pouches, since their use is not explicitly illegal.

East Asia

Like most of the continent, East Asia has been equally varied in its responses to nicotine pouches, with some embracing harm-reduction policies and others pursuing stricter regulations.

Japan: The island country has become one of the more progressive countries in nicotine product regulation. Although combustible smoking remains common, the government has shown a willingness to support harm-reduction options, particularly heated tobacco products. Nicotine pouches, especially those with synthetic nicotine, are not sold freely in Japan and are regulated as pharmaceutical products. While someone can import them for personal use, they require a pharmaceutical license for sale since they fall under the Act on Securing Quality, Efficacy, and Safety of Products Including Pharmaceuticals and Medical Devices.

South Korea: Modern oral products currently operate in a regulatory grey area. In June, the South Korean government announced it would amend its tobacco-control rules to include synthetic nicotine in the definition of tobacco, aiming to regulate this product category. Tobacco laws are managed by the National Health Promotion Act, overseen by the Ministry of Health, and the Tobacco Business Act, overseen by the Ministry of Finance.

China: As the world’s largest tobacco market, China has not fully regulated nicotine pouches. However, synthetic nicotine is illegal, according to the State Tobacco Monopoly Administration, which makes modern oral products illegal. The country has a complicated relationship with nicotine alternatives, mainly because of its large state-run tobacco industry. Although some localized rules exist in major cities for vaping products, nicotine pouches with naturally derived nicotine (snus) are still mostly unregulated nationwide due to their very low usage rates. In mid-August, it was reported that China’s state tobacco regulator has directed its affiliates to start developing nicotine pouch products and laying the groundwork for their potential launch in the domestic market. This could not be confirmed.

South Asia

Unsurprisingly, nicotine pouches experience a variety of regulatory approaches in South Asia, with some countries enforcing stricter bans while others prefer more regulated frameworks.

India: The country, which has the second-largest number of traditional tobacco smokers after China, has not yet established specific regulations for nicotine pouches but has enforced strict controls on vaping products. In 2019, India banned e-cigarettes and related items, citing public health concerns. Although current laws do not explicitly mention nicotine pouches, they are likely to be governed by similar regulatory frameworks. India’s focus on reducing tobacco use would indicate that any future rules on nicotine pouches will probably be strict.

Pakistan: Pakistan’s regulatory stance on nicotine pouches is still developing. Although the country has made progress in regulating traditional tobacco products, the market for alternative nicotine items remains mostly unregulated. Nicotine pouches, especially modern oral, are not widely available in Pakistan, and the government has not yet shown any clear plans to regulate them. However, as the market for modern oral products grows, the government will likely start implementing more comprehensive regulations in the future.

Central Asia and the Middle East

In Central Asia and the Middle East, the regulation of nicotine pouches is generally stricter than in other parts of Asia, with many countries taking conservative approaches to nicotine use.

Russia: Nicotine pouches – white pouches/tobacco-free snus – are specifically banned in Russia. Even before the specific ban on nicotine pouches, traditional snus products were already prohibited. However, chewing tobacco is permitted and falls under the general tobacco restrictions on sales, advertising, and age limits.

Saudi Arabia: Nicotine pouches exist in a legal grey area. While some alternative nicotine products, such as heated tobacco and vapes, are permitted, nicotine pouches face significant scrutiny. Tobacco laws do not specifically address nicotine pouches, whether white or snus. The Saudi Food and Drug Authority told TobaccoIntelligence that companies can request a product classification before launching, and after review, the authority decides whether it is legal.

Qatar: Nicotine pouch products are banned by law in Qatar. However, available sources do not specify whether these products can be imported for personal use. TobaccoIntelligence reports that nicotine pouches are not regulated and are subject to general consumer rules as well as 100% customs duty. Nothing specific from the Qatari government could be found.

United Arab Emirates: The UAE has been more accepting of next-generation tobacco products than most other Asian countries, especially in the Middle East region. As of July 29, 2025, the UAE officially authorized the sale of tobacco-free modern oral nicotine pouches. The decision follows the approval of a new Cabinet resolution that sets technical standards for nicotine products within the country. The move aligns with international frameworks adopted in the EU and the U.S. concerning pharmaceutical and toxicological standards.

Looking ahead

Asia, the world’s largest consumer of combustible tobacco, is fast emerging as a key market for nicotine pouch products. As the market grows, regulators and manufacturers alike face high stakes, and the coming years will determine how the products fit into the region’s tobacco landscape.

Policymakers can be expected to refine their tobacco harm-reduction strategies by weighing public health missions against the need to offer alternatives to combustible tobacco. For many businesses, success will depend on anticipating regulatory shifts and navigating a patchwork of rules that vary widely across countries.

Cover image source: Tobacco Asia