Some more information: 1) If I don't install a desktop environment, then the issue still occurs. But the default debconf settings for nslcd look more normal in this case.
2) I noticed that running "plinth --setup-no-install users" did not have the same error. So I tried removing all the policy-rc.d stuff from setup, and that avoids the error. It looks like there are conflicting objectives here: setup wants to "Make sure configuring packages do not start any services", but plinth users module wants to access the ldap service during its setup.
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