diff --git a/django/forms/__init__.py b/django/forms/__init__.py
index 195c357670..544ea7dd4f 100644
--- a/django/forms/__init__.py
+++ b/django/forms/__init__.py
@@ -971,7 +971,10 @@ class CommaSeparatedIntegerField(TextField):
 
 class RawIdAdminField(CommaSeparatedIntegerField):
     def html2python(data):
-        return data.split(',')
+        if data:
+            return data.split(',')
+        else:
+            return []
     html2python = staticmethod(html2python)
 
 class XMLLargeTextField(LargeTextField):