vxlan ports not created in clustered setup

setup:

3 controller nodes housing openstack control services as well as opendaylight with odl-ovsdb-openstack running in a cluster.

2 compute nodes

VIP via haproxy is used for interacting with openstack services (e.g. nova, neutron).

vxlan ports should be created when subnets are created, but this is not
happening. At this point, I have checked with a non-clustered setup and
did not see this issue. I also should note that with lots of poking
around (creating/deleting/restarting things) the vxlan ports will somehow
show up. I do not know the ultimate trigger for that.

the test I'm running is to bring up two openstack vm instances and verify
they can ping each other. With no underlay vxlan network, this is not
working. I do see the dhcp namespaces created on all three control nodes.
All the expected tap ports are also created.

There are also no flows programmed on the compute node br-int at this point, but
that could simply be a function of the vxlan ports not being created yet.