I realize that an extensions folder is a pretty necessary thing. With the new /Extra/10.X/Extensions folder syntax, it may not be quite so necessary.
Anyway, if the /Extra/Extensions folder is missing (even if there is a correct /Extra/10.X/Extensions folder), it doesn't get to the graphical menu.
Adding /Extra/Extensions folder (even empty) restores expected behavior (it gets to the graphical menu).
This is on a completely clean disk, on an HFS formatted EFI partition. No OS.