If the Google Authenticator policy setting "Token Provisioning" is set such that when the user logs in with no google authenticator tokens assigned to them, then one will be created and assigned.
To turn on automatic token provisioning you will need to edit the "GoogleAuthenticator/Time-Based" policy setting and set the policy to "Automatically provision token";
As an example, we have turned on auto-provisioning, and currently the user has no tokens;
We now supply our username into a portal that has OTP as the selected authentication method;
As son as we supply our username a token has been created for the user (even before we supply the OTP code);
At this stage a token has been automatically generated and assigned to the user, but if want the token to be automatically sent to the user we will also need to ensure that the policy setting "Client Provision" is set to "Automatically provision client";
With this option set, a link will also be sent to the user.