Another question about organizing icon sets

I'm curious...can there be any spaces or gaps in icon sets? 
for example, in the icon set I'm looking at now, per screen, there are
13 rows of icons in 10 columns.

If I wanted to arrange my icon sets by usage, so that in the first
column I've got just location contexts...and I have only 10
icons....should I just insert "blank" icons? Icons that are all
white/black?

TIA
Ed





 
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