Follow-up from "Resolve "Generating databases.json in PG HA environment is still happening before consul user exists""

The following discussion from !2074 (merged) should be addressed:

• @marin started a discussion:

  @ibaum said in !2074 (comment 47416752) :

  I think the proper fix is to make it generate a valid empty databases.ini, and then allow consul to update when it's provisioned later on. Or, go all in and include the consul::enable recipe in pgbouncer, to ensure that all runs first, not just the user creation.

  We should consider the workaround of including recipe a Tech debt and address it at some point.