CSDL currently requires that
13 Entity Container
Each metadata document used to describe an OData service MUST define exactly one entity container.
and then for CSDL XML only
Element edm:EntityContainer
The edm:EntityContainer MUST contain one or more edm:EntitySet, edm:Singleton, edm:ActionImport, or edm:FunctionImport elements.
This disallows "empty" services without any resources except the service document and the metadata document, or requires such services to not support metadata in CSDL XML
While this restriction may make "business sense", from a technical and tools perspective it is an unnecessary hurdle, requiring special handling in tools.