It seems that with later versions of OpenShift, swap needs to be disabled. See: minishift/minishift#1922 (comment)
This means that handle-user-data should not perform swapon, However, we should allow Minishift to change this behaviour... for instance by setting a config file /mnt/sda1/minishift/instanceconfig which contains a ENABLESWAP=true option, and a way to trigger this part with a script or command, much like handle-user-data and/or set-ipaddress does.