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Before TLS 1.3, the server sent the last handshake message and had the option to piggyback the EAP-Identity request directly onto the packet with the TLS Finished message, or wait for the empty message by the client that acknowledges the completion of the handshake. With TLS 1.3, the client finishes the handshake after the server. So this option is irrelevant there and we immediately start with Phase 2.