acl_master_token must be set on non-server agents in order to reload windows service

The config option acl_master_token must be set on non-server agents in order to reload the consul service on windows. Per the Consul ACL docs though:

Non-server agents do not need to have the acl_master_token configured; it is not used by agents in any way.

For windows installations on non-server machines the consul reload fails. As a work-around, we can populate default['consul']['config']['acl_master_token'] with any ACL token that has write access to the agent policy. Is this the appropriate solution or is this a bug?