University of Sheffield sign that says No Smoking No Vaping

The UK Government's introduction of the Tobacco and Vapes Bill is a huge moment in public health policy, with its highest profile element being the Smokefree Generation policy. This policy aims to incrementally raise the legal age for purchasing tobacco products by one year every year, starting with individuals born on or after January 2009. As a result, it won't affect 18-year-olds until 2027.

Understanding the legislation

The essence of the Smokefree Generation legislation is straightforward: it targets retailers, prohibiting the sale of tobacco to anyone below the specified age threshold. This follows a change in 2007 that increased the legal age of sale from 16 to 18.

There were previous discussions about raising this age to 21, but these did not materialise into policy. Instead, the Government commissioned the Khan Review, an independent review of smoking policies, which has since become the go-to guide for tobacco control recommendations.

The Khan Review suggested several bold strategies, including the incremental raising of the age of sale of tobacco by one year every year, following a similar policy proposed in New Zealand. Although the New Zealand policy has since been scrapped, the Kahn Review recommendation for creating a smoke-free generation is now passing through the UK legislative process in the Tobacco and Vapes Bill.

Supporting the effectiveness of the Smokefree Generation policy

A critical question remains: How will raising the age of sale affect smoking rates? If young people can still access tobacco through underage selling, illicit markets or social networks, the policy's impact may be limited.

At the time the Smokefree Generation policy was announced I was interviewed about it by Nature, who quoted me as saying it would probably "be the most impactful public-health policy ever introduced", and The Economist, who wrote a more sceptical article that raised concerns about potential shifts toward the illicit market. I emphasised that while such risks exist, the Government must implement supportive strategies at national and regional levels to promote the intended outcomes – most importantly preventing young people from starting to smoke.

The Smokefree Generation policy, described by the Government as 'stopping the start', has the potential to eliminate smoking for future generations. Having contributed to the Government's impact assessment of this policy through my population modelling work, I felt a little emotional as I listened to the policy announcement on the radio over breakfast (which left my children slightly confused).

The challenge now lies in identifying the optimal policies and complementary measures to support the effectiveness of the Smokefree Generation policy.

The role of universities

Universities play a unique role in this landscape as anchor institutions during a critical life transition for many young adults. While not all young people attend university, these environments influence a significant demographic. Like hospitals, universities have a duty of care for students and staff, making smoking a relevant issue within their wellbeing strategies.

The Smokefree Generation policy adds urgency to this responsibility. As the legal age of sale shifts, it will coincide with the typical age range of undergraduate students, from entry to graduation. While universities don't typically sell tobacco, the challenge lies in creating campus environments where smoking isn't seen as a normative behaviour.

Importantly though, tobacco control must also avoid stigmatising those addicted to tobacco, who might want to quit but for whatever reason find it hard to get started or to stay smoke-free. This means that policies should be coupled with good support systems that link students and staff to local stop-smoking services, provide nicotine replacement therapies, and embed conversations about quitting smoking into university wellbeing programmes.

Our work at the University of Sheffield

At the University of Sheffield, we've been proactive in addressing these issues, and are working in collaboration with Sheffield City Council to develop a smoke-free policy for University sites.

As part of this work we've engaged undergraduate students from the University's MBChB Medicine course to undertake a research placement with our team. The placement is focused on observing and recording smoking and vaping patterns in key locations across campus, such as the Students' Union and major buildings used for lectures and containing study spaces.

Students conduct 20-minute observation sessions, timed to capture peak campus activity, while avoiding periods like sports social nights that might skew the data. Though limited to October and November due to placement schedules, these observations have provided valuable insights. Notably, between 2024 and 2025 we saw a decline in smoking and a rise in vaping outside the Students' Union, which despite being based on only two years of observation, reflects national trends.

The placement students consistently recommended clearer signage and redesigning spaces to discourage smoking. This aligns with the University's broader wellbeing goals, aiming to create healthier, more supportive environments.

Importantly, this research is student-led, ensuring that the perspectives of those most affected are central to how we are informing strategy development at the University.

The students' findings have been compiled into reports shared with University management and Sheffield City Council to inform ongoing discussions. We are also developing a poster presentation showcasing work from the most recent placement for the School of Medicine and Population Health Research Day 2025, and plan to submit it to a national conference.

How a national network could help universities implement smoke-free policies

As we look to the future, the key priority is for universities across the country to recognise their unique role in supporting the forthcoming tobacco and vaping legislation. Each institution operates differently, including in the strength and design of their current policies on smoking and vaping. Establishing a network to support and connect these institutions could be invaluable, allowing them to share best practices, and learn from universities that are 'ahead' in the development of their smoke-free policies, both in the UK and internationally.

We would love to secure research funding or other forms of support to create this network. A structured approach would help universities plan, collect relevant data, and integrate smoke-free strategies into their broader wellbeing policies ahead of the changes brought about by the Tobacco and Vapes Bill. With approximately two years before the Smokefree Generation policy begins to take effect, there is a valuable window for planning and collaboration.

Reducing the visibility of smoking

Interestingly, the Government is also considering broader measures to reduce the visibility of smoking.

The Tobacco and Vapes Bill initially included a proposal to ban smoking in certain outdoor spaces, such as pub gardens. Although this proved controversial and was ultimately removed from the draft legislation, the Government has signalled its intention to consult on these proposals and potentially reintroduce them in some form.

There is even speculation that universities might be included in the scope of this consultation, raising the possibility of government legislation to create smoke-free university outdoor spaces.

This approach is central to the success of the Smokefree Generation policy because it focuses on reducing the visibility of smoking in everyday environments. Imagine an 18-year-old in 2027 who can't legally buy cigarettes. If they go to a pub where older people are allowed to smoke, then smoking still seems like a normal thing to do, which goes against what the policy is trying to achieve. On the other hand, if there are more outdoor spaces where smoking isn't allowed, it becomes less connected to social activities, thereby reducing its visibility and appeal.

Conclusion

The Tobacco and Vapes Bill represents a pivotal moment in "making smoking obsolete", as the Kahn review put it, with universities positioned to play a crucial role.

By helping to create environments that discourage smoking, supporting those who wish to quit, and embedding tobacco control into wellbeing strategies for students and staff, universities can be powerful agents of change.

As the legislation moves forward, collaboration, research, and proactive policy development will be key to ensuring that the next generation grows up in a society where smoking is no longer the norm.

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