As well, take care not to assume that to regulate is to make illegal, make medical-only, impose punitive taxes, etc. Sometimes the outcome of regulation is refusing to get involved — but even then, you do generally (at least, if prosocial societal goals are given sufficient precedence) see societies tend to impose some kind of either age limits or mandatory mentor or religious process onto intoxicants with regard to however they define ‘minors’, so that teenagers have to work for it, can be statistically discouraged en masse without tripping their biological contrarian responses, can be chaperoned by wiser adults, etc.
Many ”intoxicants” are inherently not addictive and may even help getting rid of other addictions (ayahuasca / DMT / other psychedelics).
Many things are not ”intoxicants” yet are addictive.
Addiction is a feature of human physiology. More specifically, FosB turning into delta-FosB seems to be the generic marker of any type of addiction, and it directly drives addictive behaviors when overexpressed in the prefrontal cortex.
The physiology is a result of millions of years of evolutionary adaptation, and while it must have correlated with evolutionary fitness at some point(s) and in some scenario(s), modern humans are surrounded by so many novel stimuli and ways of self-stimulation that we simply have not yet had the time to physiologically adapt to the situation where some of our addictions are not actually conferring true increases in our evolutionary fitness.