--- cloudinit/distros/__init__.py.orig
+++ cloudinit/distros/__init__.py
@@ -880,9 +880,12 @@ class Distro(persistence.CloudInitPickle
         # it actually exists as a directory
         sudoers_contents = ""
         base_exists = False
+        system_sudo_base = "/usr/etc/sudoers"
         if os.path.exists(sudo_base):
             sudoers_contents = util.load_file(sudo_base)
             base_exists = True
+        elif os.path.exists(system_sudo_base):
+            sudoers_contents = util.load_file(system_sudo_base)
         found_include = False
         for line in sudoers_contents.splitlines():
             line = line.strip()
@@ -907,7 +910,7 @@ class Distro(persistence.CloudInitPickle
                         "#includedir %s" % (path),
                         "",
                     ]
-                    sudoers_contents = "\n".join(lines)
+                    sudoers_contents += "\n".join(lines)
                     util.write_file(sudo_base, sudoers_contents, 0o440)
                 else:
                     lines = [
--- tests/unittests/distros/test__init__.py.orig
+++ tests/unittests/distros/test__init__.py
@@ -230,6 +230,41 @@ class TestGenericDistro(helpers.Filesyst
         self.assertIn("josh", contents)
         self.assertEqual(2, contents.count("josh"))
 
+    def test_sudoers_ensure_append_sudoer_file(self):
+        cls = distros.fetch("ubuntu")
+        d = cls("ubuntu", {}, None)
+        self.patchOS(self.tmp)
+        self.patchUtils(self.tmp)
+        util.write_file("/etc/sudoers", "josh, josh\n")
+        d.ensure_sudo_dir("/b", "/etc/sudoers")
+        contents = util.load_file("/etc/sudoers")
+        self.assertIn("includedir /b", contents)
+        self.assertTrue(os.path.isdir("/b"))
+        self.assertIn("josh", contents)
+        self.assertEqual(2, contents.count("josh"))
+
+    def test_usr_sudoers_ensure_new(self):
+        cls = distros.fetch("ubuntu")
+        d = cls("ubuntu", {}, None)
+        self.patchOS(self.tmp)
+        self.patchUtils(self.tmp)
+        util.write_file("/usr/etc/sudoers", "josh, josh\n")
+        d.ensure_sudo_dir("/b")
+        contents = util.load_file("/etc/sudoers")
+        self.assertIn("josh", contents)
+        self.assertEqual(2, contents.count("josh"))
+        self.assertIn("includedir /b", contents)
+        self.assertTrue(os.path.isdir("/b"))
+
+    def test_usr_sudoers_ensure_no_etc_creat(self):
+        cls = distros.fetch("ubuntu")
+        d = cls("ubuntu", {}, None)
+        self.patchOS(self.tmp)
+        self.patchUtils(self.tmp)
+        util.write_file("/usr/etc/sudoers", "#includedir /b")
+        d.ensure_sudo_dir("/b")
+        self.assertTrue(not os.path.exists("/etc/sudoers"))
+
     def test_sudoers_ensure_only_one_includedir(self):
         cls = distros.fetch("ubuntu")
         d = cls("ubuntu", {}, None)