In his 1988 Report of the Surgeon General, it was reported that nicotine has an addictiveness similar to that of heroin or cocaine. Koop's report was somewhat unexpected, especially by those who expected him to maintain the status quo in regard to his office's position on tobacco products. During his tenure, in 1984, Congress passed legislation providing for new, rotated health warning labels on cigarette packs and required advertising to include the labels. Those labels remain unchanged today. New labels containing graphic depictions of smoking-caused illness and death have been announced by the FDA, but are on hold pending the outcome of tobacco industry legal challenges. Koop issued a challenge to Americans in 1984 to "create a smoke-free society in the United States by the year 2000." As Surgeon General, he released eight reports on the health consequences of tobacco use, including the first report on the health consequences of involuntary tobacco smoke exposure. During Koop's tenure as Surgeon General, smoking rates in the United States declined significantly from 38% to 27%.