Consider the four differential equations in the table given on wikipedia here and assume there is no charge distribution at any point in time, and thus also no current. If there is no charge, then the four equations reduce to the following:
$\nabla\cdot E = 0$
$\nabla\cdot B = 0$
$\frac{\partial B}{\partial t} = -\nabla\times E$
$\frac{\partial E}{\partial t} = c^2\nabla\times B$
The last two equations tell us how both the magnetic and electric fields change over time respectively, thus given some initial magnetic and electric fields, one should be able to determine any future state of both field. This makes the first two equations seem redundant to me and thus the system seems over determined. However they are clearly necessary, so I must be missing something. Are the first two equations simply initial conditions?