But still they would have to create transactions for that because they can't insert garbage bits in transactions. Even if they do so by using OP_RETURN opcode, those are not spendable transactions. So they are anyway doing something fruitful to system (Creating more transactions).
Miners also could create transaction with 0 fees and add it to their mined blocks, few pool do it to reduce operational cost.
Besides, i don't think bloating blockchain with transaction miners don't want to make is good idea.
Miners need fast propagation of their blocks to avoid orphans. They're after profit and efficiency.
Miners would also have it int their interest to focus on high-fee transactions. The so called fee-market already has it that higher fee transactions are confirmed faster. For example: https://bitcoinfees.earn.com/
Compact block (which reduce block size and verification time) and running multiple full nodes (where all miner nodes connect to different nodes) improve propagation speed significantly.
This idea of the op is somewhat covered in my sticky thread.
https://bitcointalksearch.org/topic/why-all-miners-need-to-mine-on-a-pool-that-pays-them-the-tx-fees-2634505
If forced to fill 4mb with 0.00000001 minimum transaction big pools could follow the ideas in my thread above. The would flood the blocks with the mini fee thus clogging the network for other people that need to do a transaction.
So if a 4mb block has 15000 227 sized transactions it would cost a big pool
0.03405 btc or under 340.50 dollars.
it would fill 3.4mb of the block's 4mb and that small spot would cost high fees to move coins.
So say ant pool wins 20% of the blocks yeah they spend 340 dollars with bs filler transactions.
and the rest of us need to spend big coins to move coins. so if they win 1 of every 5 blocks all 5 blocks will have big ass fees. and they only had to 340 x 144 = 48960 to flood the blocks. with 0.00000001 sat based transactions. or 0.00000227 a transaction
this is why segwit and lightning are needed to prevent super pools from flooding blocks .
remember they will code there pool to accept every ant miner block first priority .
So the idea simply will not work. As ant miner can stop it.
Segwit and lightning network came about to combat this exploit.