Ok, I see what's happening here.  The reason artful doesn't prompt is
because /etc/localtime is prepopulated within the image:

$ tar tvf ubuntu-artful-core-cloudimg-amd64-root.tar.gz |grep zoneinfo
lrwxrwxrwx root/root         0 2018-05-24 13:44 etc/localtime -> 
/usr/share/zoneinfo/UTC
$

This is despite the fact that the tzdata package itself is not
installed.

In bionic, this symlink is not present:

$ tar tvf ubuntu-bionic-core-cloudimg-amd64-root.tar.gz |grep zoneinfo
$

This is in fact a deliberate change in bionic as part of the minimal
image work; in livecd-rootfs live-build/auto/build:

        if [ "${SUBPROJECT:-}" = minimized ] \
           && ! Chroot chroot dpkg -l tzdata 2>&1 |grep -q ^ii; then
                # workaround for tzdata purge not removing these files
                rm -f chroot/etc/localtime chroot/etc/timezone
        fi

The behavior you're seeing in bionic is the *expected* behavior on a
completely fresh install of the tzdata package.  The reason you don't
see this behavior in prior releases is that it's not truly a fresh
install, and there is cruft left on the filesystem in the form of
/etc/localtime.  If /etc/localtime already exists, tzdata has no need to
prompt instead of using the existing configuration on the system.  If it
doesn't exist, tzdata will ask debconf, which means a prompt by default.

So your setting DEBIAN_FRONTEND=noninteractive, if you don't care about
/etc/localtime and just tzdata to use the default, is the correct fix
here.

** Changed in: tzdata (Ubuntu)
       Status: New => Invalid

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https://bugs.launchpad.net/bugs/1773687

Title:
  [bionic] no unattended installation

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