admin container ignores password set in user-data

**Image I'm using:**

metal-dev

**Issue or Feature Request:**

When setting a password in user-data.toml (via base64'd user-data as described in the docs), logging in to the local console (tty0) fails.

user-data pre-base64:

```json
{
"user": "bottlerocket",
"password-hash": "(generated with mkpasswd -m yescrypt -R 11 password-goes-here)",
"ssh": {
"authorized-keys": [
"ssh-ed25519 REDACTED my-key"
]
}
}
```

Once the admin container starts, it takes over tty0 (understandable) and attempting to log in with `root` (no password) fails.
However, the `user` specified in `user-data` (bottlerocket) and the password specified by `password-hash` in `user-data` do not work -- login always fails.

However, SSHing into the host/admin container using the provided `ssh.authorized-keys` works. Inspecting the user-data shows that the user data was successfully applied (base64 value matches what is expected).