Prevent create_empty_blocks=false

[ValarDragon]

Closes #1571

• Targeted PR against correct branch (see CONTRIBUTING.md)

• Linked to github-issue with discussion and accepted design OR link to spec that describes this work.

• Added entries in PENDING.md with issue #

• rereviewed Files changed in the github PR explorer

---

For Admin Use:

• Added appropriate labels to PR (ex. wip, ready-for-review, docs)
• Reviewers Assigned
• Squashed all commits, uses message "Merge pull request #XYZ: [title]" (coding standards)

[codecov]

Codecov Report

Merging #2284 into develop will decrease coverage by 0.05%.
The diff coverage is 0%.

@@             Coverage Diff             @@
##           develop    #2284      +/-   ##
===========================================
- Coverage    63.87%   63.82%   -0.06%     
===========================================
  Files          140      140              
  Lines         8682     8689       +7     
===========================================
  Hits          5546     5546              
- Misses        2756     2763       +7     
  Partials       380      380

[cwgoes]

utACK