Image empties were originally added to be an easier to use background image.
Since 2.8x allows to remove some functionality, I'm proposing to remove background images.
- They're stored in the viewport making it impossible to move to other scenes or viewports. //(When "Load UI" is disabled, they're lost for eg)//.
- They're difficult to manipulate.
- They're duplicate code/functionality.
If we need empty-images to support some different draw options, we can always do this.
To make empty images more accessible the Add menu can have a "Background Image" entry with submenu choices "Left", "Top", .., and immediately opening a file browser to select the image. (suggested by @brecht)
The one thing background images can do is draw in the camera with framing options.
I'd suggest this option be moved into the camera data-block (optional draw image/movieclip).