diff --git a/pkg/kubelet/config/config.go b/pkg/kubelet/config/config.go
index 123ea71919c..caa3062fc91 100644
--- a/pkg/kubelet/config/config.go
+++ b/pkg/kubelet/config/config.go
@@ -152,7 +152,9 @@ func (s *podStorage) Merge(source string, change interface{}) error {
 	s.updateLock.Lock()
 	defer s.updateLock.Unlock()
 
+	seenBefore := s.sourcesSeen.Has(source)
 	adds, updates, deletes := s.merge(source, change)
+	firstSet := !seenBefore && s.sourcesSeen.Has(source)
 
 	// deliver update notifications
 	switch s.mode {
@@ -160,7 +162,7 @@ func (s *podStorage) Merge(source string, change interface{}) error {
 		if len(deletes.Pods) > 0 {
 			s.updates <- *deletes
 		}
-		if len(adds.Pods) > 0 {
+		if len(adds.Pods) > 0 || firstSet {
 			s.updates <- *adds
 		}
 		if len(updates.Pods) > 0 {
@@ -168,15 +170,15 @@ func (s *podStorage) Merge(source string, change interface{}) error {
 		}
 
 	case PodConfigNotificationSnapshotAndUpdates:
+		if len(deletes.Pods) > 0 || len(adds.Pods) > 0 || firstSet {
+			s.updates <- kubetypes.PodUpdate{Pods: s.MergedState().([]*api.Pod), Op: kubetypes.SET, Source: source}
+		}
 		if len(updates.Pods) > 0 {
 			s.updates <- *updates
 		}
-		if len(deletes.Pods) > 0 || len(adds.Pods) > 0 {
-			s.updates <- kubetypes.PodUpdate{Pods: s.MergedState().([]*api.Pod), Op: kubetypes.SET, Source: source}
-		}
 
 	case PodConfigNotificationSnapshot:
-		if len(updates.Pods) > 0 || len(deletes.Pods) > 0 || len(adds.Pods) > 0 {
+		if len(updates.Pods) > 0 || len(deletes.Pods) > 0 || len(adds.Pods) > 0 || firstSet {
 			s.updates <- kubetypes.PodUpdate{Pods: s.MergedState().([]*api.Pod), Op: kubetypes.SET, Source: source}
 		}
 
diff --git a/pkg/kubelet/config/config_test.go b/pkg/kubelet/config/config_test.go
index 00f9007db99..362a488aca7 100644
--- a/pkg/kubelet/config/config_test.go
+++ b/pkg/kubelet/config/config_test.go
@@ -267,6 +267,31 @@ func TestNewPodAddedUpdatedSet(t *testing.T) {
 		CreatePodUpdate(kubetypes.UPDATE, TestSource, pod))
 }
 
+func TestInitialEmptySet(t *testing.T) {
+	for _, test := range []struct {
+		mode PodConfigNotificationMode
+		op   kubetypes.PodOperation
+	}{
+		{PodConfigNotificationIncremental, kubetypes.ADD},
+		{PodConfigNotificationSnapshot, kubetypes.SET},
+		{PodConfigNotificationSnapshotAndUpdates, kubetypes.SET},
+	} {
+		channel, ch, _ := createPodConfigTester(test.mode)
+
+		// should register an empty PodUpdate operation
+		podUpdate := CreatePodUpdate(kubetypes.SET, TestSource)
+		channel <- podUpdate
+		expectPodUpdate(t, ch, CreatePodUpdate(test.op, TestSource))
+
+		// should ignore following empty sets
+		podUpdate = CreatePodUpdate(kubetypes.SET, TestSource)
+		channel <- podUpdate
+		podUpdate = CreatePodUpdate(kubetypes.ADD, TestSource, CreateValidPod("foo", "new"))
+		channel <- podUpdate
+		expectPodUpdate(t, ch, CreatePodUpdate(test.op, TestSource, CreateValidPod("foo", "new")))
+	}
+}
+
 func TestPodUpdateAnnotations(t *testing.T) {
 	channel, ch, _ := createPodConfigTester(PodConfigNotificationIncremental)