Can, but not by default. The default setup is what leaves an impression on most users. Most users opening GIMP for the first time expect to be able to find stuff that they need, not have to first spend a lot of time getting familiar with all of its options. It shouldn’t be needed to first spend time opening all the sane default windows and re-aliging stuff every time you boot it for the first time. At least, that shouldn’t be the case of GIMP wants to be as popular with non-technical users like Krita is.
Also, the tool bar still doesn’t have the nice separations between tool functions, and it still feel a bit more chaotic. Not sure of it’s the icons or the order.