Its a bureaucratic artifact. Sort of like when a document correction or log entry error is signed off by an inspector, and then the signing off is itself cancelled or superseded. The official instruction for this is to "Erase your initial and initial your erasure." Of course, you NEVER erase anything. You draw a single line through it and then initial THAT. This presumably allows someone down the line to reconstruct what happened.

I've dealt with this type of document before. Sometimes large sections of text are deleted from a "living document" during a routine update, but a blank page is inserted to preserve the numbering scheme. Otherwise, people might believe a page was lost, or deliberately removed. You see it all the time in technical manuals that are frequently updated. Presumably, it alerts the reader that the missing page is not missing, and directions, citations and references scattered throughout the text to other parts of the document need not be updated.

I once was tasked to write a massive technical manual by using boilerplate from other, similar manuals. In the midst of all this modular verbiage, I inserted a paragraph about how a certain procedure was "not a substitute for a rigorous program of oral hygiene and regular professional care". No one ever noticed.

I understand a lot of legislation, government regulations and legal briefs are composed this way.