It does seem like some classic goal post moving. But with these kinds of stocks and dealing with government agencies, time lines really have to be thrown away.
Basically, Mitch McConnell is running the country, legislatively, and he's from a major tobacco growing and processing state. If those parties can be assured there won't be a net loss of jobs or revenue by switching to VLN production, FDA action will probably ensue. If not, not.
The FDA is no less a political animal than any other government entity.
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