If you're asking why people might be interested to find their "Empty" order, it helps to tame the parser when trying to load a @VGR command in case a user doesn't select any @LOAD_ORDERS beforehand. (See
http://heo-iforms.blogspot.com/2013/07/sending-vgr-command-by-itself-from-vgr.html for more detail).
If you're asking what the purpose of these orders is in HEO, my best guess is that these are the "placekeeper" orders that are used to have a valid entry in the database for things like outline remarks and the "return" elements at the bottom of outlines. That said, HEO responds to them by doing nothing -- just as if you were to click a remark in an outline, so they're perfect for getting the parser to get its head on straight without adding any additional orders to the patient.