Because the in
operator is to test membership, and by that notion, the empty set is a subset of all other sets. To be consistent in that regard, the in
operator was deliberately designed to act accordingly.
5.9 Comparisons
The operators in and not in test for collection membership. x in s evaluates to true if x is a member of the collection s, and false otherwise. x not in s returns the negation of x in s. The collection membership test has traditionally been bound to sequences; an object is a member of a collection if the collection is a sequence and contains an element equal to that object. However, it make sense for many other object types to support membership tests without being a sequence. In particular, dictionaries (for keys) and sets support membership testing.
For the list and tuple types, x in y is true if and only if there exists an index i such that x == y[i] is true.
For the Unicode and string types, x in y is true if and only if x is a substring of y. An equivalent test is y.find(x) != -1. Note, x and y need not be the same type; consequently, u'ab' in 'abc' will return True. Empty strings are always considered to be a substring of any other string, so "" in "abc" will return True.