Hi Ramesh,
i don't understand your requirement. how the users are creating Blank Orders (without any Material in line item)? what is the purpose of creating those orders? could you please share your Business Process for a better understanding.
but for sure, if you are sending the blank orders and expecting the GTS System should behave as it functions with normal orders is not a right aspect.
As explained by Kul Vaibhav, the functionality of Technical Incomplete is to specify the documents which are incomplete due to missing Master Data (FTOs, Legal Units, BPs, Materials and Item Categories) in GTS, this is the process designed by SAP .
hope you are clear now.
Thanks,
Srinivas Yellampalli