network: Fix OpenFlow flip-flopping
network: Fix OpenFlow flip-flopping

Before, the flows responsible for forwarding packets from LOCAL to
containers were being created with a format that was changed by
`ovs-ofctl`. Specifically, actions of the form `actions=1` were being
changed to `actions=output:1`. This meant that on every run, we would
delete the `actions=output:1` flow, and try to replace it with
`actions=1`.

This patch fixes this bug by generating the target flows in a format
that won't be modified by `ovs-ofctl`.

LuiseV/quilt,NetSys/quilt,stevenlin598/quilt,kelda/kelda,kelda/kelda,LuiseV/quilt,kayousterhout/quilt,mmussomele/quilt,ejj/quilt-dev,LuiseV/quilt,mmussomele/quilt,kklin/quilt,stevenlin598/quilt,mmussomele/quilt,kklin/quilt,PenguinToast/quilt,kklin/quilt,PenguinToast/quilt,PenguinToast/quilt,tejasmanohar/quilt,ejj/quilt-dev,kklin/kelda,kayousterhout/quilt,quilt/quilt,mmussomele/quilt,tejasmanohar/quilt,kklin/kelda,NetSys/quilt,LuiseV/quilt,tejasmanohar/quilt,PenguinToast/quilt,stevenlin598/quilt,NetSys/quilt,PenguinToast/quilt,tejasmanohar/quilt,quilt/quilt,mmussomele/quilt,quilt/quilt,kklin/kelda,kklin/kelda,ejj/quilt-dev,stevenlin598/quilt,NetSys/quilt,kelda/kelda,kklin/quilt,LuiseV/quilt,kayousterhout/quilt,NetSys/quilt,kelda/kelda,quilt/quilt,stevenlin598/quilt,stevenlin598/quilt,mmussomele/quilt,ejj/quilt-dev,kayousterhout/quilt