init: prevent action being added to the action_queue twice

Property triggers may cause an action to be queued twice, resulting
in a loop in the action queue.  Keep actions that are not on the queue
in the list_empty state (act->qlist->next == act->qlist), and only
add them to the list if they are in that state.

Bug: 8335133
Change-Id: I3a3ec18176cf19cbaa3a45220a03c7560eacfe79