Can BNF consist of zero rules?
Concretely speaking, the Backus-Naur form is a notation for context-free grammars, applied to the (formal) description of languages at the syntactical level.

While there are extended versions of BNF that have been standardized, the BNF itself hasn't, so there is no way of determining if the empty grammar is "legal" BNF.

As a mathematical object, the possibility of an empty grammar will depend on the definition (of grammar) used. A grammar that has no productions is usually said to define the empty language, but any grammar whose set of possible terminal derivations is empty is also a candidate definition of the empty language.