diff --git a/src/device-state.ts b/src/device-state.ts
index 33ac3960..09c2d535 100644
--- a/src/device-state.ts
+++ b/src/device-state.ts
@@ -415,15 +415,16 @@ export async function loadInitialState() {
 		update_downloaded: false,
 	});
 
+	let loadedFromFile = false;
 	if (!conf.provisioned || !conf.targetStateSet) {
-		await loadTargetFromFile(constants.appsJsonPath);
+		loadedFromFile = await loadTargetFromFile(constants.appsJsonPath);
 	} else {
 		log.debug('Skipping preloading');
 	}
 
-	// Only trigger initial target if we have received a target
-	// from the cloud at some point
-	if (conf.targetStateSet) {
+	// Only apply target if we have received a target
+	// from the cloud or loaded from file
+	if (conf.targetStateSet || loadedFromFile) {
 		triggerApplyTarget({ initial: true });
 	}
 }
diff --git a/src/device-state/preload.ts b/src/device-state/preload.ts
index f87eb870..cd82dec1 100644
--- a/src/device-state/preload.ts
+++ b/src/device-state/preload.ts
@@ -19,7 +19,7 @@ export function appsJsonBackup(appsPath: string) {
 	return `${appsPath}.preloaded`;
 }
 
-export async function loadTargetFromFile(appsPath: string): Promise<void> {
+export async function loadTargetFromFile(appsPath: string): Promise<boolean> {
 	log.info('Attempting to load any preloaded applications');
 	try {
 		const content = await fs.readFile(appsPath, 'utf8');
@@ -43,7 +43,7 @@ export async function loadTargetFromFile(appsPath: string): Promise<void> {
 		let appToPin: string | undefined;
 
 		if (_.isEmpty(preloadState)) {
-			return;
+			return false;
 		}
 
 		const imgs: Image[] = [];
@@ -100,6 +100,7 @@ export async function loadTargetFromFile(appsPath: string): Promise<void> {
 				});
 			}
 		}
+		return true;
 	} catch (e) {
 		// Ensure that this is actually a file, and not an empty path
 		// It can be an empty path because if the file does not exist
@@ -131,4 +132,5 @@ export async function loadTargetFromFile(appsPath: string): Promise<void> {
 				);
 		}
 	}
+	return false;
 }