Follow the money. Remember the Big Tobacco settlement about 20 years ago? Part of that settlement included annual payments to the states that sued, the amount of which was to be based on the number of smokers in the states. Those states then issued binds against those future payments. At the time, the rate of smokers remained pretty constant. Now that smoking combustible cigarettes is less prevalent, due to e-cig, and other less harmful methods of ingesting nicotine, the amount of those annual payments will be less.
By issuing bonds against the tobacco settlement payments, the affected states have basically made themselves dependent on at least a certain percentage of smokers.