Revert "Depecrate flags, and try to match them to actions"

This reverts commit 063eefa7.
The problem with this fix is that services expect to be able to
determine if a node has certain capabilities, even if it is disabled,
and doesn't have the action associated with them.

Change-Id: Ia17ed6ed5f92737226cfe704dc71957f2ae5541b
Fix: 120247282
Test: it builds.