Most of the time a block of code is empty when a piece of code is really missing. So such empty block must be either filled or removed.

Noncompliant Code Example

For Index As Integer = 1 To 42 ' Empty on purpose or missing piece of code?
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Compliant Solution

For Index As Integer = 1 To 42
    Process(Index)
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Exceptions

When a block contains a comment, this block is not considered to be empty.