Regulation (EU) 2025/40Applies from 12 Aug 2026Independent publication - not legal advice
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Void Fill Under the PPWR: Air Pillows, Paper, Foam - and Why Fill Is Space

Under Article 24, filling material measures the problem rather than curing it. The fill families compared on protection, counting treatment, material status and cost - and the immobilisation uses that remain legitimate.

Published 24 October 2026Checked against the regulation text on 24 October 2026European Union

The short answer

Void fill's legal character changes under Article 24: fill placed inside a consignment counts toward empty space, not toward packaging material. The generous air-pillow habit - a large carton made 'safe' by a metre of pillows - produces a ratio that fails the cap no matter how recyclable the pillows are. Fill retains one legitimate job: immobilisation and protection, dosed by the damage data - enough to stop movement and cushion the tested drops, in the right-sized carton the right-sizing guide prescribes.

This guide compares the fill families on the merits that remain - protection per gram, counting treatment, their own status as packaging (they are packaging, with grade, fee and substance duties of their own), and the uses each still wins.

The families compared

Air pillows and air cushions: minimal material per volume, excellent immobilisation in light goods, and the counting treatment's clearest loser - their volume is space by definition. Paper systems (crumpled, fanfold, die-cut honeycomb papers): material-heavier, strong cushioning and blocking, kerbside-recyclable in most systems, and counted as space when used as fill - though paper structures engineered as the packaging itself (moulded inserts, corrugated fitments) stand differently in the count, as designed components rather than loose fill. Foams and moulded pulp fitments: engineered protection for fragile and high-value goods, justified through the damage data where they belong - and pulp fitments recycled-content friendly. Loose chips (starch or EPS): the legacy option, declining on material grounds alone. The comparison's punchline: the winner by protection per counted litre is usually the engineered fitment inside a right-sized outer - fill as design, not as stuffing.

Immobilisation: the dose makes the compliance

The legitimate fill question is a physics question: does the product move in transit, and what deceleration do the drops deliver? Movement causes the scuffing, abrasion and impact damage that dominate e-commerce failure modes; a product immobilised by a fitment or a modest fill dose in a snug carton outperforms a product swimming in pillows in a large one on damage as well as ratio. Pack benches should be specified like processes: per product family, the carton, the fitment or fill dose, the closure - photographed as the standard - with deviations treated as process errors. That specification discipline is what converts fill from a packer's improvisation into a measured input whose dose the damage data can tune.

Cost honesty: fill is bought air freight

Fill's true cost stacks: the material, the pack-bench labour of placing it, the freight on the enlarged consignment it enables, and the disposal irritation it causes the customer (a reputational cost with a measurable returns-and-reviews shadow). Right-sizing attacks all four at once, which is why its business cases survive finance review even before the regulatory cap is priced in. Businesses budgeting the Article 24 programme should present the four-part stack - it is the difference between a compliance cost centre and the rare regulation that pays the compliant to comply.

The insert boundary: when fill becomes design

The counting boundary worth understanding precisely is between loose fill and designed components. A corrugated fitment die-cut to the product, a moulded pulp tray, a formed insert that is part of the packaging unit's specification - these are packaging components with volumes of their own, not loose space, and the inner void they eliminate is eliminated in fact. The boundary test is design intent made physical: specified, dimensioned, part-numbered and present in the technical file, versus scooped, blown or crumpled at the bench. Businesses can legitimately move along this boundary - converting chronic fill use into an engineered insert is genuine right-sizing of the inner space - provided the insert earns its place in the damage data rather than merely in the count.

The customer's end of the fill question

Fill is also the customer's first physical encounter with your packaging judgement: a bathtub of pillows around a phone case communicates something, and unboxing culture has made that communication public. The disposal burden - a bag of plastic film the household cannot recycle kerbside in many municipalities - lands precisely on the sustainability claim the brand prints elsewhere. Right-sizing's reputational dividend is therefore part of its return, measurable in review language and return rates, and worth one line in the programme's dashboard: fill incidents mentioned in reviews, trended like the damage they accompany.

Primary sources on the record

Legal status: Article 24 of Regulation (EU) 2025/40 (counting treatment); filler materials carry their own packaging duties. Application position for this topic: Counting from 1 January 2030.

Follow the line

Station 08 - Minimisation and empty space Packaging Minimisation and Empty Space: Articles 10 and 24 Explained Design packaging down to the minimum its function justifies - and ship no consignment more than half air. The pillar guide to the minimisation duty, the performance criteria that justify material, and the 50 percent empty-space ratio. Station 08 - Minimisation and empty space 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. Station 08 - Minimisation and empty space Right-Sizing E-Commerce Packaging: Cartonisation, Assortments and On-Demand Boxes The fulfilment programme that answers Article 24: carton assortment design, cartonisation logic in the WMS, on-demand box making, and the returns loop. Built from the measurement audit outward.