Exactly ... the limit is proposed at a maximum of 4mg, how you get there is another debate ... not opened by my post.
Here is the bit taken from the press release PDF file
The proposal stipulates that NCP that either have a nicotine level exceeding 2 mg, a
nicotine concentration exceeding 4 mg per ml or whose intended use results in a
mean maximum peak plasma concentration exceeding 4 ng per ml may be placed on
the market only if they have been authorised as medicinal products on the basis of
their quality, safety and efficacy, and with a positive risk/benefit balance. NCP with
nicotine levels below this threshold can be sold as consumer products provided they
feature an adapted health warning. The nicotine threshold identified in this proposal
has been established by considering the nicotine content of medicinal products
(Nicotine Replacement Therapies, NRTs) for smoking cessation which have already
received a market authorisation under the medicinal products' legislation.