Missing rules after OVS restart - even though they exist in config/inventory-nodes

I've got into a state where not all rules are restored to OVS after performing an OVS restart.

I've attached the relevant inventory-nodes dump, openflow capture when the OVS was restarted, dump-flows from the OVS and karaf.log with openflowplugin set to TRACE debug level.

In the reproduction I've restarted OVS with dpnid=openflow:118964806422873. A missing flow (for example, there are others) is the flow with id="RESUB-40" which exists in inventory-nodes, but missing in the flows synced to the OVS.

The missing flow is not seen in the openflow pcap as well.