fix initial setup without add_user

Change-Id: Ia7e75729cfb4cf8e1ede6294e9da8848f680923b
Reviewed-on: https://gerrit.instructure.com/37139
Reviewed-by: Nathan Mills <nathanm@instructure.com>
Tested-by: Jenkins <jenkins@instructure.com>
Product-Review: Cody Cutrer <cody@instructure.com>
QA-Review: Cody Cutrer <cody@instructure.com>