One or more packing systems and/or methods of manufacture are disclosed for a valve seal with lowered emissions while being complaint with fire standards. The packing system may have alternating mid-layers, a top layer, a bottom layer, and a first end cap and a second end cap. The layers can be formed of a flexible graphite-based material and/or a perfluoroalkoxy alkane (PFA) material. The layers may be bonded together and expand under compression to form a seal between a valve stem and a stuffing box.