Worker bees conform a concensous of what to do, and the decision is made from input perceived. A fresh young queen in summer or early fall has the pheremones and desire to lay more than an early year queen, so the workers give her room by moving honey out of the broodnest to enlarge the laying area. Of course room for moving honey/nectar out of broodnest area is needed.
Workers will backfill a broodnest not necessarily to slow down a queen, but to have nectar around the brood for feed, or as a place of storage while comming to a concensous to start drawing comb above. If the workers want to slow down a queen, they simply slow down or stop feeding her, which will cause her to slow down or stop laying.
Many things go can be input for making the concensous... space available, nectar flows, weather, strength/age of the queen, amount of pollen and open nectar stores, the time of year, etc.
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