A year ago there were about 15 smokers in my shop. Today there are 10 smokers and 5 vapers. The place has several different trades. Electricians, machinists, welders, builders, programers, designerrs, etc. All the people who switched, inclluding me, are in the electrical department. The solcal inflluence is evident. What's happening in my shop has to be happening in a lot of work places. Does the FDA really want to interfere with that? Where I work is in a 50,000 square foot area with a 30' ceiling. We are allowed to vape on the shop floor (I did tell one of the guys to turn down the watts, clouds too big). The non vapers say the impact on them is zero. Management is fine with it. One motive for management is if we aren't wasting money on cigarettes we live a lot better on what they can pay us. That might be the biggest benefit for all concerned.
When the OMB evaluates they are looking at what the government loses in taxes by allowing the Tobacco Age to end and what the public loses in all sorts of ways if more smokers keep smoking. To date no health consequences of vaping have been identified so they are left with a political calculation. An interesting cost/benefit tradeoff.