set-vlan-action does not work

when set-vlan-action is used in a flow-add operation from restconf, no flow-mod message is sent to the switch. All other parameters of the flow with a different action.

The following xml can be used to reproduce the problem:

<?xml version="1.0" encoding="UTF-8" standalone="no"?>
<flow xmlns="urn:opendaylight:flow:inventory">
<strict>false</strict>
<instructions>
<instruction>
<order>0</order>
<apply-actions>
<action>
<order>0</order>
<set-vlan-id-action>
<vlan-id>4000</vlan-id>
</set-vlan-id-action>
</action>
</apply-actions>
</instruction>
</instructions>
<table_id>0</table_id>
<id>138</id>
<cookie_mask>10</cookie_mask>
<installHw>false</installHw>
<match>
<ethernet-match>
<ethernet-type>
<type>2048</type>
</ethernet-type>
</ethernet-match>
<ipv4-destination>10.0.0.1/24</ipv4-destination>
</match>
<hard-timeout>12</hard-timeout>
<flags>FlowModFlags [_cHECKOVERLAP=false, _rESETCOUNTS=false, _nOPKTCOUNTS=false, _nOBYTCOUNTS=false, _sENDFLOWREM=false]</flags>
<cookie>10</cookie>
<idle-timeout>34</idle-timeout>
<flow-name>FooXf14</flow-name>
<priority>2</priority>
<barrier>false</barrier>
</flow>

use the following URL:

http://192.168.4.1:8080/restconf/config/opendaylight-inventory:nodes/node/openflow:1/table/0/flow/138