The first paragraph seems to reinforce my statement rather than rebut it.The FDA-CTP, with a hand full of Employees, Locked down tobacco regulations in 2009 with restrictions applying to 2007 Specifications.
Since then the FDA -CTP has become a Monster with hundreds of employees, State of the art Facilities and an ever growing Money pit of Funding -to Maintain Status Quo
It seems Clear to me the FDA-CTP was created to Protect US tobacco Companies from Being Shut Down and tobacco Products outright Outlawed in the Face of Public Outrage.

How the FDA implements the TCA is a shifting compromise of public opinion and activism, the financial interests of the parties involved, and the willingness of the government to allow people to aid in their own demise. There is probably someone squirreled away in the back corner of the OMB who runs cost analyses on tobacco use and determines what's an acceptable cost-to-loss ratio.