Thinking more about initial-setup logic... We still don't let you out of anaconda without setting a root password or creating an admin user. So why have that spoke in initial-setup? It seems pointless. Okay, so we could make it optional in anaconda and pop up initial-setup if you don't do it in anaconda, that would be the other option. But that just seems more complex and confusing. And I don't think it works well with gnome-initial-setup. g-i-s can't set the root password, so I think if we let you out of anaconda if you'd created a non-admin user account and not set a root password, the GNOME path would break. Honestly, thinking through all these anaconda/i-s/g-i-s logic thickets is getting ludicrous. There has to be a better way.
OK, now I know what the plan is here, let's make it all one bug. *** This bug has been marked as a duplicate of bug 963935 ***