I think we may need to see what your data looks like.
Do you really have a field with the value "IsEmpty", and are these the records you want to return?
If so, you currently have it set to only showing "IsEmpty" records for "E-5" Pay Grade, and then show ALL "E-6" Pay Grade records. If you want to limit the "E-6" records, you will need to put "IsEmpty" on that Criteria row too.
If you are trying to return records where there are no matching records in the Duty Section for each Rate Table record, you will want to do a Left Outer Join from the Rate Table to the Duty Section table, and then you will want to use Is Null as the Criteria (not quotes around it). Or, you can just use the Unmatched Query Wizard and let Access come up with the query for you.
Use Is Null as criteria to retrieve records with null. You will need this on both criteria rows.
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