A proposed change to the text is:
The Authority section contains the signed NS RRset for the root, or is empty.
That works for me/us. Speaking for myself, we'd always do what the community decided is the right response. There are multiple software implementations (and we run more than one, hence our different responses at different times). If we want to standardize on what should go in the authoritative section, that should be done in an RFC and all the implementations should change to support that new expectation.