We've talked about this before and I've asked Derek about this in the past.
Here's the deal on this and it makes sense from an actual fun factor even if it seems less elegant on paper:
All units always have weapons. Therefore, the balance on initiative is achieved by looking at what the average weapon does.
The idea being that, from a percentage change to initiative, you are better in having a middle starting point and go up and down than to have everything take you down.
So the way to look at it is that the short sword is +3 initiative better than the average weapon.
Obviously, modders can do what they want. But I will be the first to tell you that the "Fun" effects of having everything apply a negative initiative might make things a lot less enjoyable than you might think because of the large changes you'd need to make through the whole game to make this all balance nicely.