I think public demand for anatabine may be what turns the tide. The NFL and veterans are probably key because would be popular causes with the media (would sell), and because a lot of powerful political donors are connected with both groups.
The public demand would be along the lines of this: "if you have no safety issue then let us try this. We're happy to wait for proof of efficacy, but let us start trying it now. There is no legitimate reason why a federal agency should keep citizens from trying to preserve their own lives."
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