Default Behaviour of Issue Navigator for Empty Search

Steps to Reproduce:

1. Login to JIRA
2. Click Issues Menu
3. Click "New Filter" button on the left side

Expected Results:

1. An empty result set as the search criteria is not yet defined (isn't this a regression issue as in JIRA versions <= 5.1 an empty set was returned)

Actual Results:

1. The entire set of issues in the JIRA instance is returned as the search result. And if the User profile is set to have 1000 issues to be shown, and with an instance of SAC's size, this appears to be an unnecessary load on JIRA and slow response of Issue Navigator. (At the moment it returns 332K issues in SAC and takes 20s for the Issue Navigator to respond once the 'New Filter' is clicked).