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consume_userdata should really run always, rather than once per instance.
The documentation says that boothooks were on their own for per-instance
but since this routine was only being called once, they would only get
called once.
This modifies the behavior to be:
user_script: per_always
cloud_config : per_always
upstart_job : per_instance
cloud_boothook: per_always
In order to not break part handlers that are existing, and expect to only be
called once per instance, this adds a 'handler_version' item in a handler
that can indicate the version (currently 1 or 2). If it is 2, then the
hander will be passed the frequency (per-instance or per-always) that this
is being run. That way the handler can differenciate between them.
This also makes 'bootcmd' run every boot. That should be changable in
cloud-config though, so users who dont like the behavior can modify it.
LP: #819507
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