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The 'initialized' field in struct cpufreq_governor is only used by
the conservative governor (as a usage counter) and the way that
happens is far from straightforward and arguably incorrect.

Namely, the value of 'initialized' is checked by
cpufreq_dbs_governor_init() and cpufreq_dbs_governor_exit() and
the results of those checks are passed (as the second argument) to
the ->init() and ->exit() callbacks in struct dbs_governor.  Those
callbacks are only implemented by the ondemand and conservative
governors and ondemand doesn't use their second argument at all.
In turn, the conservative governor uses it to decide whether or not
to either register or unregister a transition notifier.

That whole mechanism is not only unnecessarily convoluted, but also
racy, because the 'initialized' field of struct cpufreq_governor is
updated in cpufreq_init_governor() and cpufreq_exit_governor() under
policy->rwsem which doesn't help if one of these functi...