This is a FIPS 140-2 requirement.
The FIPS_mode_set(1) in init_fips_mode() called from OPENSSL_init_library is to 
satisfy the FIPS 140-2, Section 4.9 requirement that power-up selftest be run 
when the module is powered-up. This must be done regardless of whether the 
module is to be run in FIPS mode or not. Reading /proc entry only indicates 
whether to run the module in FIPS mode.

Note: The FIPS code in openssl in Xenial is a work-in-progress and is not 
complete.
All effort is made to optimize the power-up selftest as mush as possible.

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https://bugs.launchpad.net/bugs/1591797

Title:
  Only run FIPS self tests when FIPS is enabled

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