Health policy and the emerging tobacco reality

Public policy is part of and a creator of modern environments. By intent or neglect, it affects our socially-created and natural worlds. It sets the odds for what organizations and individuals are likely to produce and consume in the form of goods, services and information, and assures how equitably these options for choice-making--and thus for life styles--are dispersed among social and economic groups. Policy is also created by environments: it is influenced by the reality of changing conditions and by the perceptions of those changes by groups who are organized to influence policymakers' views of 'reality'. The direction, humaneness and healthfulness of societal changes--to the extent that they can be guided--depend on whether new and old things are seen by policymakers in new or old ways. Creating environments conducive to health thus requires a two-pronged effort. It means: (1) developing policies that provide incentives to producers and consumers to make more healthful choices than they do today; and (2) creating a social and political climate that will encourage policymakers to choose more healthful policy options. This view point is illustrated here through an analysis of the smoking and health issue, in which changing conditions can potentially be healthfully guided, or alternatively, left to the vagaries of political and economic events. This article outlines the changing economics of tobacco, mainly as seen in its largest form in the U.S.A., its policy implications, and a political strategy to move policy in more healthful directions. Economic data reveal the tobacco sector in affluent nations as one that has been slowly declining, but now at an accelerating rate. At the same time, the tobacco economy is a growing sector in less- industrialized nations. Policy issues involve how to deal with the economic changes in health-promoting ways. Strategically this requires two simultaneous efforts. One is education/informational: posing the smoking/health issue in light of changing conditions, and addressing policy-relevant data (both economic and value-oriented) to the gatekeepers of public action and information (e.g. policymakers and media). The second is environmental/organizational, to improve the feasibility of policy changes by establishing means for transition planning in the tobacco economy.