The 50 Percent Empty-Space Ratio: What Counts, What Is Exempt, How It Is Judged
Article 24's cap in full: empty space defined, the ratio calculated on grouped, transport and e-commerce consignments, filler materials' treatment, and the qualifications the methodology builds in.
The short answer
The empty space ratio is the volume of a consignment that is neither product nor packaging material, divided by the consignment's total packaged volume. From 1 January 2030, for grouped, transport and e-commerce packaging, that ratio may not exceed 50 percent. A shipment of cartons totalling 100 litres, containing 45 litres of product and 8 litres of packaging material, runs a ratio of 47 percent - lawful. The same product in bigger cartons totalling 120 litres runs 56 percent - not lawful, however protective the intention.
Three scope points matter immediately. The cap addresses shipped configurations (grouped, transport, e-commerce), not the shelf unit - sales packaging's space discipline is Article 10's justification duty. Filling materials count as empty space, not as packaging that fills it - air pillows do not cure a ratio. And the ratio is judged per consignment as shipped, not as an average of a catalogue's intentions.
What counts as product, packaging and space
The methodology's counting rules decide borderline fortunes, and the file should adopt them expressly as they adopt. The working logic: product volume is the packaged goods themselves, measured by their bounding volumes under the methodology's conventions for irregular shapes; packaging material volume is the materials as used (carton board by its occupied volume in the erected form, films and cushioning that are themselves the packaging); everything else - including loose fill, air pillows, paper cushioning used as fill and the voids inside an oversized outer - is empty space. The recurring shock for operators is filler treatment: void fill was historically specified as the cure for empty space, and under this rule it is the measurement of it. Right-sizing, not filling, is the compliance technology.
Qualifications and honest edges
The rule carries qualifications the implementing methodology will formalise, and the file should track them as they settle: treatment of consignments whose products are themselves irregular or fragile in ways the measurement conventions must respect; reusable transport packaging circulating in a system, whose geometry serves return logistics; and products sold with integral space requirements (goods that must not be compressed, arrangements fixed by other safety law). None of these is a general fragility exemption - the direction of the methodology is to make protection claims specific and evidenced, which is the minimisation station's recurring theme. Operators should plan to the rule and record their qualification positions as positions, with the methodology citations to follow when adopted.
The averaging trap
Nothing in the cap rewards a good average over bad consignments. A fulfilment operation whose mean ratio is 38 percent but whose long tail of small orders in the largest carton runs 75 percent has a compliance problem located precisely in its tail - which is also where its carton assortment and picking logic are weakest. Programme design therefore starts from the distribution of ratios across real consignments, not the mean: the tail is the target list, and cartonisation improvements are ranked by tail reduction. The measurement guide next in this station gives the sampling discipline that makes the distribution honest.
The sales-packaging edge of the same idea
Although the numeric cap addresses shipped configurations, its logic leaks onto the shelf through Article 10: a sales pack whose internal void is most of its volume will be asked the justification question in its sharpest form, and 'the grouped case needed the size' must be shown, not said, where a range board could carry the product at true size. Design reviews should therefore compute an internal void figure for every sales format as a matter of routine - not because a cap number applies, but because the number organises the conversation before an authority organises it for you. Ranges that know their own void figures make better format decisions even where no rule compels them.
Primary sources on the record
- Regulation (EU) 2025/40 of 19 December 2024 on packaging and packaging waste, Official Journal text on EUR-Lex.
- European Commission, packaging waste topic page - guidance and act progress.
- European Parliament and Council Directive 94/62/EC of 20 December 1994 on packaging and packaging waste, text on EUR-Lex - the directive the PPWR repeals and replaces.
Legal status: Article 24 of Regulation (EU) 2025/40; calculation detail by implementing methodology. Application position for this topic: From 1 January 2030.