Never mind. Someone brought to my attention the distinction between
/etc/xdg/xfce4/panel/panels.xml (one panel) and
/etc/xdg/xubuntu/xfce4/panel/panels.xml (two panels). No merging is
going on, and thus there is no bug.
** Changed in: xfce4-session (Ubuntu)
Status: New => Invalid
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Incorrect desktop setup if xfce4-session is invoked directly instead of
startxfce4
https://bugs.launchpad.net/bugs/487309
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