I think one has to be very careful about the fundamental principles of anything and prevent taking lazy approaches to understanding things.
Powdercoating does not "require" any sort of surface processing. The basic definition of powdercoating is the application of finely powdered thermopolymer, designed to fluidize and crosslink at specific temperatures (usually high temperatures, but can vary.)
Because you're attempting to adhere fine powder to a substrate, the industry has standardized application through the use of electrostatic attraction between the substrate and the powder itself. The advantage of this is that coatings can be much more uniform than typical (because the maximum thickness of the electrostatic coating is tightly controlled by the electrostatic charge applied to the powder itself.) The big disadvantage of the electrostatic method is anode shadowing.
However, powdercoat can be applied by any number of means, including solvent-borne spray and brushing if necessary.
Surface treatments to the substrate are identical to any other painting method (rattle-can, etc.) You can theoretically apply powdercoat to any surface condition - even dirty and greasy, but the end result will be low adhesion - just like acrylic urethanes and two-part epoxy finishes. You can apply powdercoating directly to mill scale, but its adhesion will be no different than the adhesion of other finishes directly on mill scale.
If you are engineering a finish, and you have the luxury of specifying an adhesion in psi, and that specified adhesion is low enough, then you can get away with very little in the way of surface preparation.
That said, typical epoxy and polyester TGIC based formulations on powdercoat are approaching 2000-3000psi surface adhesion. If you have an intermediate layer between the powdercoat and the base metal, the intermediate layer adhesion to the base metal must equal or exceed the powdercoat itself, otherwise, you will end up with peeling, etc.