cloudbase-init service seems can only start after user login

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First, sorry for my poor english and thanks for reading this question

I use https://www.cloudbase.it/downloads/Cl...Betax64.msi to install cloudbase-init with default settings in windows server 2012R2. and use http://169.254.169.254/* to get data from openstack. after the first boot, the cloudbase has set value in HKEYLOCALMACHINE\Software\Wow6432Node\Cloudbase Solutions\Cloudbase-Init of Windows registry, then I delete the all Windows registry thing about plugins, set the adminpass value in metadata, reboot the instance, and then cloudbase-init can only do all stuff after user login. I can prove this from the cloudbase-init.log and before login the password can not be changed. after login and all cloudbase-init stuff has done, we just logout and login again, the password has changed.

All those things do in one instance(installation, delete registry value, reboot). In my opinion, by this means of the cloudbase-init service(description as 'Cloud Initialization Service') must be action before login, we can change the password as purpose.

Is there setting wrong of my cloudbase-init or something i may be missing. please tell me, thanks very much.

if you guys need more further information, please tell me then.

this is my cloudbase-init.conf

[DEFAULT]
username=Admin
groups=Administrators
inject_user_password=true
config_drive_raw_hhd=true
config_drive_cdrom=true
config_drive_vfat=true
bsdtar_path=C:\Program Files (x86)\Cloudbase Solutions\Cloudbase-Init\bin\bsdtar.exe
mtools_path=C:\Program Files (x86)\Cloudbase Solutions\Cloudbase-Init\bin\
verbose=true
debug=true
logdir=C:\Program Files (x86)\Cloudbase Solutions\Cloudbase-Init\log\
logfile=cloudbase-init.log
default_log_levels=comtypes=INFO,suds=INFO,iso8601=WARN
logging_serial_port_settings=
mtu_use_dhcp_config=true
ntp_use_dhcp_config=true
local_scripts_path=C:\Program Files (x86)\Cloudbase Solutions\Cloudbase-Init\LocalScripts\