Thank you to the Canadian Cancer Society for compiling this information over many years,1-5 to Tobacco Free Kids for expanding on and further updating this information,6-8 and to the World Health Organization for its 2016 global status report updated in October 2018 and June 2022.9 This section combines information from all three sources and additional news reports and other information that has become available outside of these publications.
Australia's plain packaging legislation has been applauded by respected commentators in tobacco control,10,11 and by international health authorities.12 It has also strengthened the resolve of several other governments to follow Australia's example. As of October 2025, plain packaging laws have been adopted and implemented in 25 jurisdictions (see Table 11A.6.1) and adopted with implementation pending in a further two countries.5 Several countries have expressed interest in implementing plain packaging, while others are in the process of consideration.
11A.6.1 Laws adopted and implemented
Following the lead of Australia (December 2012), plain packaging has been required at the retail level in France and Monaco (since January 2017), the United Kingdom (since May 2017), New Zealand and the Cook Islands (since June 2018), Norway (since July 2018), Ireland (since September 2018), Thailand and Uruguay (since December 2019), Saudi Arabia, Slovenia, Turkey and Israel (since January 2020), Canada (since February 2020), Singapore (since July 2020), Belgium (since January 2021), the Netherlands (since October 2021), Hungary (since January 2022), Denmark (since April 2022), Guernsey and Jersey (since July 2022), Finland and Mauritius (since May 2023), Oman (since July 2024), Georgia (since April 2025), and Myanmar (since October 2025).5
Details of legislation now in force
France – Plain packaging legislation was adopted on 17 December 2015.13,14 This legislation was upheld on 21 January 2016 by France’s Constitutional Council.15 On 23 December 2016, the Council of State (France’s highest administrative court) dismissed legal challenges.16 An implementing Decree9 and Decision17 were adopted on 21 March 2016, and a further Decree adopted on 11 August 2016.18 On 20 July 2015, France hosted a 10-country ministerial meeting on plain packaging.19,20 Plain packs started appearing on the market in France in May 2016, and all packs were required to be plain by January 2017. A related piece of legislation in France, Decree No 20116-117 of 11, allows the Minister to outlaw specified ‘promotional brand names’ (brand names with characteristics/connotations that promote smoking). On 6 August 2018, the French Conseil d’Etat (Council of State) referred to the European Court of Justice a request to the Prime Minister by the Federation of Cigar Manufacturers, to repeal this Decree.21
United Kingdom – Plain packaging regulations were approved on 16 March 2015,22 and came into force on 20 May 2016, applying to England, Wales9 Northern Ireland9 and Scotland.23 On 19 May 2016, a tobacco industry legal challenge was dismissed, with an appeal dismissed by the Court of Appeal on 30 November 2016, and with application for leave to appeal to the UK Supreme Court dismissed on 12 April 2017.24,25
New Zealand – Plain packaging legislation was adopted on 14 September 2016 and regulations approved on 6 June 2017. Plain packs came onto the market from 14 March 2018 at the manufacturer level, and 6 June 2018 at the retailer level.26-28
Norway – Plain packaging legislation was adopted on 10 February 2017 and regulations were adopted on 22 June 2017.29 Plain packs have been required from 1 July 2017 at the manufacturer level and 1 July 2018 at the retailer level.30-34 On 6 November 2017, the Oslo District Court dismissed an attempt to suspend implementation of plain packaging requirements applying to snuff, pending the outcome of a legal challenge.35
Ireland – Plain packaging legislation was enacted on 10 March 2015,36-39 and later amended on 16 February 2017.40 Packs have been required to be plain since 30 September 2017 at the manufacturer level and 30 September 2018 at the retailer level.41
Cook Islands – Plain packaging in practice; packages same as in New Zealand, since June 2018.3
Monaco – Plain packaging in practice; packages same as in France, since January 2017.3
Thailand – A Thailand government representative stated that plain packaging was under consideration in November 2015.6,42 An Act containing regulatory authority to require plain packaging was gazetted on 2 April 2017 and came into effect on 4 July 2017.43,44 The necessary regulations were approved by the Public Health Ministry on 14 November 2018.45 All tobacco products were required to comply with the legislation by September 2019.46
Uruguay – Uruguay’s President stated on 24 November 2015 and reiterated on 8 July 2016 that plain packaging was being considered.47,48 A Philip Morris legal claim under a bilateral Switzerland-Uruguay investment agreement was dismissed on 8 July 2016, regarding significant packaging restrictions (though not plain packaging).49 Subsequently, on 13 July 2016, the Health Minister stated that a plain packaging law was being developed and would be implemented in 2017.50 A Government bill providing enabling authority to require plain packaging was introduced in the Senate on 6 November 2017 and referred to the Public Health Committee on 7 November 2017.51,52 A Presidential decree was subsequently issued and the Ministry then issued an ordinance to implement it.3 On 21 December 2018 Uruguay became the first country in Latin America to require plain packaging for tobacco products following the president’s signature of the legislation, with an implementation date of 21 December 2019.53
Saudi Arabia – In October 2018, the Kingdom of Saudi Arabia notified the World Trade Organization of its intention to adopt plain packaging regulations.54 On 17 December 2018, plain packaging legislation was entered into force, with the Saudi Food and Drug Authority giving manufacturers and importers of tobacco products a grace period until 23 August 2019 and retailers until 1 January 2020.55,56
Slovenia – Act adopted on 15 February 2017 required plain packaging effective from 1 January 2020, and required the Minister of Health to adopt a plain packaging regulation by 8 September 2017.57,58 The laws were subsequently adopted in April 2019, for implementation on 1 January 2020.59
Turkey – Plain packaging was included in the Government’s national action plan for 2015-2018.60 In August 2016, the Health Minister stated that plain packaging was under consideration.61 On 9 February 2017, he stated ‘we have completed preparations for the introduction of plain packaging’.62 A plain packaging bill was put to the Turkish Parliament on 30 October 2018,63 and following discussions in November64 on 5 December 2018, Turkey introduced new plain packaging rules for tobacco, via Law Number 7151.65 Detailed regulations were adopted on 1 March 2019 which required plain packaging to be implemented at the manufacturer level by 5 July 2019 and at the retailer level by 5 January 2020.66 On 27 June 2019, the regulations were amended to postpone the implementation at the manufacturer level to 5 December 2019.67
Israel – On 8 January 2019, Israel's Parliament passed new rules relating to the marketing and advertising of tobacco products. Health warnings must comprise between 30%-65% of the package size (depending on the tobacco product), and the remaining area of the packaging, for all brands, will be in Pantone 448C (described as "drab dark brown"). The new regulations came into force on 8 January 2020.68
Canada – Plain packaging was recommended in 1994 by the House of Commons Standing Committee on Health.69 On 19 October 2015, the Liberal Government committed in electoral platform to implement plain packaging.70 On 13 November 2015, the Prime Minister’s mandate letter to the Minister of Health included plain packaging as a ‘top priority’.71 On 31 May 2016, Health Minister Jane Philpott launched a public consultation ending on 31 August 2016.72,73 A government bill, Bill S-5, to elaborate on regulatory authority for plain packaging was approved by the Senate on 1 June 2017, received its first reading in the House of Commons on 15 June 2017,74 and was adopted on 23 May 2018. On 1 May 2019, the Health Minister reported that plain packaging would be introduced nationwide on 9 November 2019, with full implementation by 7 February 2020. In order to increase the size of the health warning, packages must be a slide-and-shell design, rather than the smaller, narrower flip-top design.75
Singapore – On 29 December 2015, Singapore launched a public consultation on plain packaging ending on 29 March 2016.76,77 On 9 March 2017, the Senior Minister of State for Health stated that a further public consultation would be held in 2017.9 On 4 February 2018, Singapore launched a public consultation ending on 16 March 2018.9,78 The Ministry of Health announced on 31 October 2018 that it will propose amendments to the Tobacco (Control of Advertisements and Sale) Act (Cap. 309) in early 2019 to introduce plain packaging into Singapore.79 On 1 July 2019, Singapore published the Tobacco (Control of Advertisements and Sale) (Appearance, Packaging and Labelling) Regulations 2019, to come into effect on 1 July 2020 at both the manufacturer and retail levels. The regulations mandate plain packaging and an increase in the size of picture warnings from 50% to 75% effective from 1 July 2020. A series of 6 different picture warnings is required.80
Belgium – The Public Health Minister announced on 9 April 2016 that Belgium was to have plain packaging by 2019.6,81 He announced on 7 September 2018 that plain packaging would be legislated for after the required EU notification process. In April 2019, the decree was adopted. The new legal requirements are applicable on all tobacco products put on the Belgian market from 1 January 2020. Retailers had 12 months (until 31 December 2020) to sell their remaining old stock.82,83
Netherlands – Plain packaging was implemented in the Netherlands on 1 October 2020. Cigarettes and rolling tobacco are sold in dark green-brown packaging without logos, with the brand and variant names in a standard typeface, and with a graphic health warning. Retailers were able to sell existing stock until 1 October 2021, while new products must have plain packaging. For other products, such as cigars and e-cigarettes, plain packaging was required from 1 January 2022.84
Hungary – On 16 August 2016, Hungary adopted a Decree to require plain packaging. New brands registered after 30 April 2016 and placed on the market from 20 August 2016 had to be sold in retail in plain packs. Brands that were registered after April 2016 but were already on the market prior to August 2016 had until 20 May 2018 to be sold at retail in plain packs. The implementation date of plain packaging for brands that existed before April 2016 was originally scheduled for 20 May 2019, but was postponed to 1 January 2022.85-88
Denmark – On 12 December 2020, the Minister of Health and Elderly Affairs announced amendments to Denmark’s Tobacco Products Act including the implementation of plain packaging. Manufacturers were required to comply with the new requirements from 1 July 2021, meanwhile retailers were able to sell existing stock until 1 April 2022, after which time all tobacco products (except cigars and pipe tobacco) as well as herbal smoking products, e-cigarettes and refills (regardless of whether they contain nicotine) must be sold in plain packaging.89,90
Guernsey and Jersey (self-governing islands (British Crown Dependencies) located in the English Channel) – On 18 May 2021, Guernsey’s Committee for Health & Social Care announced the Tobacco Advertising and Related Activities (Guernsey) Regulations 2021. On 30 June 2021, Jersey’s States Assembly announced the Restriction on Smoking (Standardised Packaging and Labelling) (Jersey) Regulations 2021, in line with Guernsey’s regulations. The regulations introduced plain packaging for tobacco products from 31 July 2021 in both Islands. Retailers had 12 months (until 31 July 2022) to sell existing cigarette and loose tobacco stock, and 24 months (until 31 July 2023) to sell other tobacco stock (e.g. cigars and cigarillos).91-93
Finland – Plain packaging was included in the Finnish Government’s national action plan on tobacco (June 2014) as a planned measure.6 On 16 March 2022, the Finnish Parliament approved a bill amending the Finnish Tobacco Act. The amendments include the introduction of plain packaging for tobacco products from 1 May 2023.94
Mauritius – On 20 May 2022, the Cabinet of the Republic of Mauritius approved tobacco product regulations which included introducing plain packaging restrictions on tobacco products. The plain packaging restrictions were originally scheduled to come into effect from 31 December 2022 at the manufacturer level and from 1 March 2023 at the retail level, but were later postponed to 31 May 2023.95,96
Oman – On 14 February 2023, the Oman Ministry of Commerce, Industry, and Investment Promotion issued a decision on standard specification for plain packaging of tobacco products. The standards were scheduled to come into effect six months after 5 March 2023 (September 5th 2023)97 but were extended by administrative practice to 4 July 2024.
Georgia – Legislation was adopted on 30 May 2017 with regulatory authority to require plain packaging.98 In July 2017, an amendment was published, that postponed implementation until 31 December 2022. On 16 May 2022, the Georgian government approved Technical Regulations on Standardization of Tobacco Products and their Packaging for Sale in Georgia (Resolution No. 257) which was scheduled to come into effect on 31 December 2022.99 A further amendment postponed the implementation of plain packaging requirements to 31 July 2024 for both manufacturers and retailers,100 later postponed to 1 April 2025.5
Myanmar – On 12 October 2021, Myanmar’s Ministry of Health announced the adoption of plain packaging for tobacco products.101 In April 2022, an amendment was published, that postponed implementation to 1 January 2023 at the manufacturer level, and 1 April 2023 at the retail level.102 Implementation eventually took place on 20 October 2025.5
11A.6.2 Laws adopted and pending implementation
Plain packaging legislation has been adopted and is pending implementation at the retail level in Iceland (May 2027) and Syria (June 2027).5 In Armenia, plain packaging legislation was adopted on 13 February 2020 and was scheduled to come into effect on 1 January 2024. However, its implementation status is currently unknown.103
11A.6.3 Laws adopted but not yet in force
Plain packaging legislation has been adopted in Côte d'Ivoire, Laos and Romania.
Côte d'Ivoire – On 23 July 2019, the National Assembly adopted Law No 2019-676 Concerning Tobacco Control which provided authorisation to the government to adopt regulations requiring plain packaging.104 The Council of Ministers adopted a decree on 26 January 2022, and an Order on 18 June 2024, requiring plain packaging to be effective from 18 December 2024. However, there have been several implementation delays.5
Laos – On 13 May 2024, a decree was adopted requiring plain packaging to be implemented on 5 December 2024. Implementation has been extended twice. The second extended date of 15 August 2025 was not complied with.5
Romania – A law adopted on 4 November 2016 includes a provision authorising government to adopt decision requiring plain packaging105 but regulations have so far not been adopted.
11A.6.4 Legislation being considered by Parliaments
Plain packaging legislation has been drafted and introduced in Parliaments in Brasil, Chile, Costa Rica, Ecuador, French Polynesia, Hong Kong, Panama, and South Africa.
Brasil – Five different plain packaging bills have been introduced in the Senate and House of Representatives, most recently in May 2016.6
Chile – A Bill was approved by Senate on 9 July 2015, and forwarded to House of Deputies.106 This was approved by the House Health Committee on 22 January 2018. However, it was rejected by the House Agricultural Committee in December 2021. The Bill was then passed back to the Chamber of Deputies, which passed the Bill on to the Health Committee for further consideration.3
Costa Rica – A Bill that included provisions for standardised packaging was introduced in March 2021.56 The Bill was defended in a hearing held in the Social Matters Commission of the National Assembly on 23 March 2022.107
Ecuador – A Bill for plain packaging was introduced to the National Assembly on 3 August 2016 and was assigned to the health committee.6
French Polynesia – A Bill requiring plain packaging was approved by Cabinet on 22 April 2025 and later adopted by the French Polynesia Assembly on 29 August 2025. However, an implementation order is still required for the legislation to take effect.5
Hong Kong – Legislation with regulatory authority for plain packaging was announced on 19 September 2025, intended for implementation in the second quarter of 2027.5
Panama – A Bill was introduced to the National Assembly in January 2013. A sub-committee recommended removal making reference to World Trade Organization’s Agreement on Trade-Related Aspects of Intellectual Property Rights (TRIPS ) agreement, but no further action was taken.6
South Africa – The South African Health Minister stated on 24 July 2014 that he wanted to implement plain packaging,9 and stated on 18 March 2015108 and on 31 May 2016109 that legislation will be introduced in Parliament. In November 2017, the Health Minister stated a draft bill would be submitted to Cabinet in early 2018.110 A bill was published on 9 May 2018 with the consultation period ending on 9 August 2018. The Bill contained regulatory authority for introduction of plain packaging but was not implemented. On 9 December 2022, a further bill with regulatory authority was introduced in National Assembly. The Portfolio Committee on Health completed public hearings on the Bill on 29 August 2025.5
11A.6.5 Plain packaging under formal government consideration
Plain packaging legislation is or has been under formal consideration in Spain, Sri Lanka, Sweden and Taiwan.
Spain – On 11 March 2021, the Spanish Minister of Health announced that a comprehensive tobacco prevention and control plan was being developed that would include plain packaging.111
Sri Lanka – On 7 November 2016, the Sri Lankan President stated that the Minister of Health is proposing to introduce plain packaging “in the near future.”112,113 On 11 April 2018, the Government announced that Cabinet had authorised drafting of legislation.3
Sweden – The Swedish Minister of Health directed the committee examining implementation of the EU Tobacco Product Directive to also consider plain packaging. This was subsequently recommended by the health committee but raised constitutional issues. The Government has yet to propose a bill in response and action seems unlikely in the short to medium term.6
Taiwan – On 13 February 2017, the Taiwanese Government provided notification of a draft bill containing regulatory authority to require plain packaging.114
11A.6.6 Countries in which political commitments to plain packaging have been given
Expressions of support for implementation of plain packaging have also been made by the governments of Botswana,115 Fiji, Gambia,116 Kenya,117 Macau, Malaysia, Nepal, and the United Arab Emirates.
Botswana – On 21 May 2016, the Minister of Health announced government intentions to introduce plain packaging.6
Fiji – On 18 December 2024, the Cabinet launched the Investment Case for Tobacco Control in Fiji Report, which contained five recommendations, one of which was to implement plain packaging.5
Gambia – The Minister of Health and Welfare stated on 2 August 2016 that his Ministry supported plain packaging and the Government of The Gambia would soon be passing laws requiring it.6
Kenya – On 31 May 2016, the Cabinet Secretary for Health announced that a formal plan and timeline for implementation would be developed.
Macau – In February 2025, the Health Bureau recommended the implementation of plain packaging in a Follow-Up and Assessment Report.5
Malaysia – On 21 March 2016, the Health Minister said no implementation date would be announced until talks with tobacco companies on intellectual property had concluded.6
Nepal – On 8 May 2017, the Minister of Health announced that Nepal would have plain packaging by 2018.118-120
United Arab Emirates – The Ministry of Health announced in February 2014 that it intended to introduce legislation that would include plain packaging.6
11A6.7 Other relevant law
East Timor – A Ministerial Diploma on the labelling of tobacco products came into force on 13 May 2018, which requires that all surfaces not covered by health warnings are coloured grey aluminium and that the brand/logo only appear on the front outer surface (the Diploma also stipulates new GHWs covering 100% of the back surface and 85% of the front surface – the largest in the world). Any text or logos must be white; however, because a logo is allowed and the brand name may appear in a stylised font, the requirements are not a full plain packaging policy.121
European Union – The Tobacco Products Directive adopted on 3 April 2014 explicitly states that 28 EU countries have the option of implementing plain packaging, a provision upheld on 4 May 2016 by the European Court of Justice as valid when dismissing a tobacco industry legal challenge.122-124
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References
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18. Décret n° 2016-1117 du 11 août 2016 relatif à la fabrication, à la présentation, à la vente et à l'usage des produits du tabac, des produits du vapotage et des produits à fumer à base de plantes autres que le tabac (amends the Code de la santé publique [Public Health Code]). 2016. Available from: https://www.legifrance.gouv.fr/eli/decret/2016/8/11/AFSP1612356D/jo.
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