I don't really see a bug in debconf here. Multiselect questions can naturally be answered by chosing none of the choices. That can be done using any frontend, and like any other potentially invalid data, it's up to the program using debconf to validate it.
The debconf readline frontend will behave differently depending on the backend readline module used. With libterm-readline-gnu-perl it can prefill the user's input with the default of the question, and the user can erase it all and submit an empty line to indicate NOTA, so the explicit "none of the above" choice is not offered there. With the stub readline module, an empty line has to mean the default value, so an explicit "none of the above" choice is needed, *unless* the default value *is* none of the above, then it removes the explicit choice. I think this explains the behavior described. It might be a nice extension to debconf to have a flag that indicates that a multiselect question requires at least one thing be chosen. -- see shy jo
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