diff --git a/include/net/act_api.h b/include/net/act_api.h
index 086b291e9530..f19f7f4a463c 100644
--- a/include/net/act_api.h
+++ b/include/net/act_api.h
@@ -58,6 +58,14 @@ struct tc_action {
 #define TCA_ACT_HW_STATS_ANY (TCA_ACT_HW_STATS_IMMEDIATE | \
 			      TCA_ACT_HW_STATS_DELAYED)
 
+/* Reserve 16 bits for user-space. See TCA_ACT_FLAGS_NO_PERCPU_STATS. */
+#define TCA_ACT_FLAGS_USER_BITS 16
+#define TCA_ACT_FLAGS_USER_MASK 0xffff
+#define TCA_ACT_FLAGS_POLICE	(1U << TCA_ACT_FLAGS_USER_BITS)
+#define TCA_ACT_FLAGS_BIND	(1U << (TCA_ACT_FLAGS_USER_BITS + 1))
+#define TCA_ACT_FLAGS_REPLACE	(1U << (TCA_ACT_FLAGS_USER_BITS + 2))
+#define TCA_ACT_FLAGS_NO_RTNL	(1U << (TCA_ACT_FLAGS_USER_BITS + 3))
+
 /* Update lastuse only if needed, to avoid dirtying a cache line.
  * We use a temp variable to avoid fetching jiffies twice.
  */
@@ -99,8 +107,8 @@ struct tc_action_ops {
 	void	(*cleanup)(struct tc_action *);
 	int     (*lookup)(struct net *net, struct tc_action **a, u32 index);
 	int     (*init)(struct net *net, struct nlattr *nla,
-			struct nlattr *est, struct tc_action **act, int ovr,
-			int bind, bool rtnl_held, struct tcf_proto *tp,
+			struct nlattr *est, struct tc_action **act,
+			struct tcf_proto *tp,
 			u32 flags, struct netlink_ext_ack *extack);
 	int     (*walk)(struct net *, struct sk_buff *,
 			struct netlink_callback *, int,
@@ -179,18 +187,16 @@ int tcf_action_destroy(struct tc_action *actions[], int bind);
 int tcf_action_exec(struct sk_buff *skb, struct tc_action **actions,
 		    int nr_actions, struct tcf_result *res);
 int tcf_action_init(struct net *net, struct tcf_proto *tp, struct nlattr *nla,
-		    struct nlattr *est, char *name, int ovr, int bind,
+		    struct nlattr *est,
 		    struct tc_action *actions[], int init_res[], size_t *attr_size,
-		    bool rtnl_held, struct netlink_ext_ack *extack);
-struct tc_action_ops *tc_action_load_ops(char *name, struct nlattr *nla,
+		    u32 flags, struct netlink_ext_ack *extack);
+struct tc_action_ops *tc_action_load_ops(struct nlattr *nla, bool police,
 					 bool rtnl_held,
 					 struct netlink_ext_ack *extack);
 struct tc_action *tcf_action_init_1(struct net *net, struct tcf_proto *tp,
 				    struct nlattr *nla, struct nlattr *est,
-				    char *name, int ovr, int bind,
 				    struct tc_action_ops *a_o, int *init_res,
-				    bool rtnl_held,
-				    struct netlink_ext_ack *extack);
+				    u32 flags, struct netlink_ext_ack *extack);
 int tcf_action_dump(struct sk_buff *skb, struct tc_action *actions[], int bind,
 		    int ref, bool terse);
 int tcf_action_dump_old(struct sk_buff *skb, struct tc_action *a, int, int);
diff --git a/include/net/pkt_cls.h b/include/net/pkt_cls.h
index ec7823921bd2..e20d5cd5df60 100644
--- a/include/net/pkt_cls.h
+++ b/include/net/pkt_cls.h
@@ -327,7 +327,7 @@ tcf_exts_exec(struct sk_buff *skb, struct tcf_exts *exts,
 
 int tcf_exts_validate(struct net *net, struct tcf_proto *tp,
 		      struct nlattr **tb, struct nlattr *rate_tlv,
-		      struct tcf_exts *exts, bool ovr, bool rtnl_held,
+		      struct tcf_exts *exts, u32 flags,
 		      struct netlink_ext_ack *extack);
 void tcf_exts_destroy(struct tcf_exts *exts);
 void tcf_exts_change(struct tcf_exts *dst, struct tcf_exts *src);
diff --git a/include/net/sch_generic.h b/include/net/sch_generic.h
index 9ed33e6840bd..c0069ac00e62 100644
--- a/include/net/sch_generic.h
+++ b/include/net/sch_generic.h
@@ -357,7 +357,7 @@ struct tcf_proto_ops {
 	int			(*change)(struct net *net, struct sk_buff *,
 					struct tcf_proto*, unsigned long,
 					u32 handle, struct nlattr **,
-					void **, bool, bool,
+					void **, u32,
 					struct netlink_ext_ack *);
 	int			(*delete)(struct tcf_proto *tp, void *arg,
 					  bool *last, bool rtnl_held,
diff --git a/include/uapi/linux/pkt_cls.h b/include/uapi/linux/pkt_cls.h
index 025c40fef93d..6836ccb9c45d 100644
--- a/include/uapi/linux/pkt_cls.h
+++ b/include/uapi/linux/pkt_cls.h
@@ -22,6 +22,7 @@ enum {
 	__TCA_ACT_MAX
 };
 
+/* See other TCA_ACT_FLAGS_ * flags in include/net/act_api.h. */
 #define TCA_ACT_FLAGS_NO_PERCPU_STATS 1 /* Don't use percpu allocator for
 					 * actions stats.
 					 */
diff --git a/net/sched/act_api.c b/net/sched/act_api.c
index 998a2374f7ae..7dd3a2dc5fa4 100644
--- a/net/sched/act_api.c
+++ b/net/sched/act_api.c
@@ -495,7 +495,7 @@ int tcf_idr_create(struct tc_action_net *tn, u32 index, struct nlattr *est,
 	p->tcfa_tm.install = jiffies;
 	p->tcfa_tm.lastuse = jiffies;
 	p->tcfa_tm.firstuse = 0;
-	p->tcfa_flags = flags;
+	p->tcfa_flags = flags & TCA_ACT_FLAGS_USER_MASK;
 	if (est) {
 		err = gen_new_estimator(&p->tcfa_bstats, p->cpu_bstats,
 					&p->tcfa_rate_est,
@@ -941,7 +941,7 @@ void tcf_idr_insert_many(struct tc_action *actions[])
 	}
 }
 
-struct tc_action_ops *tc_action_load_ops(char *name, struct nlattr *nla,
+struct tc_action_ops *tc_action_load_ops(struct nlattr *nla, bool police,
 					 bool rtnl_held,
 					 struct netlink_ext_ack *extack)
 {
@@ -951,7 +951,7 @@ struct tc_action_ops *tc_action_load_ops(char *name, struct nlattr *nla,
 	struct nlattr *kind;
 	int err;
 
-	if (name == NULL) {
+	if (!police) {
 		err = nla_parse_nested_deprecated(tb, TCA_ACT_MAX, nla,
 						  tcf_action_policy, extack);
 		if (err < 0)
@@ -967,7 +967,7 @@ struct tc_action_ops *tc_action_load_ops(char *name, struct nlattr *nla,
 			return ERR_PTR(err);
 		}
 	} else {
-		if (strlcpy(act_name, name, IFNAMSIZ) >= IFNAMSIZ) {
+		if (strlcpy(act_name, "police", IFNAMSIZ) >= IFNAMSIZ) {
 			NL_SET_ERR_MSG(extack, "TC action name too long");
 			return ERR_PTR(-EINVAL);
 		}
@@ -1004,12 +1004,11 @@ struct tc_action_ops *tc_action_load_ops(char *name, struct nlattr *nla,
 
 struct tc_action *tcf_action_init_1(struct net *net, struct tcf_proto *tp,
 				    struct nlattr *nla, struct nlattr *est,
-				    char *name, int ovr, int bind,
 				    struct tc_action_ops *a_o, int *init_res,
-				    bool rtnl_held,
-				    struct netlink_ext_ack *extack)
+				    u32 flags, struct netlink_ext_ack *extack)
 {
-	struct nla_bitfield32 flags = { 0, 0 };
+	bool police = flags & TCA_ACT_FLAGS_POLICE;
+	struct nla_bitfield32 userflags = { 0, 0 };
 	u8 hw_stats = TCA_ACT_HW_STATS_ANY;
 	struct nlattr *tb[TCA_ACT_MAX + 1];
 	struct tc_cookie *cookie = NULL;
@@ -1017,7 +1016,7 @@ struct tc_action *tcf_action_init_1(struct net *net, struct tcf_proto *tp,
 	int err;
 
 	/* backward compatibility for policer */
-	if (name == NULL) {
+	if (!police) {
 		err = nla_parse_nested_deprecated(tb, TCA_ACT_MAX, nla,
 						  tcf_action_policy, extack);
 		if (err < 0)
@@ -1032,22 +1031,22 @@ struct tc_action *tcf_action_init_1(struct net *net, struct tcf_proto *tp,
 		}
 		hw_stats = tcf_action_hw_stats_get(tb[TCA_ACT_HW_STATS]);
 		if (tb[TCA_ACT_FLAGS])
-			flags = nla_get_bitfield32(tb[TCA_ACT_FLAGS]);
+			userflags = nla_get_bitfield32(tb[TCA_ACT_FLAGS]);
 
-		err = a_o->init(net, tb[TCA_ACT_OPTIONS], est, &a, ovr, bind,
-				rtnl_held, tp, flags.value, extack);
+		err = a_o->init(net, tb[TCA_ACT_OPTIONS], est, &a, tp,
+				userflags.value | flags, extack);
 	} else {
-		err = a_o->init(net, nla, est, &a, ovr, bind, rtnl_held,
-				tp, flags.value, extack);
+		err = a_o->init(net, nla, est, &a, tp, userflags.value | flags,
+				extack);
 	}
 	if (err < 0)
 		goto err_out;
 	*init_res = err;
 
-	if (!name && tb[TCA_ACT_COOKIE])
+	if (!police && tb[TCA_ACT_COOKIE])
 		tcf_set_action_cookie(&a->act_cookie, cookie);
 
-	if (!name)
+	if (!police)
 		a->hw_stats = hw_stats;
 
 	return a;
@@ -1063,9 +1062,9 @@ struct tc_action *tcf_action_init_1(struct net *net, struct tcf_proto *tp,
 /* Returns numbers of initialized actions or negative error. */
 
 int tcf_action_init(struct net *net, struct tcf_proto *tp, struct nlattr *nla,
-		    struct nlattr *est, char *name, int ovr, int bind,
-		    struct tc_action *actions[], int init_res[], size_t *attr_size,
-		    bool rtnl_held, struct netlink_ext_ack *extack)
+		    struct nlattr *est, struct tc_action *actions[],
+		    int init_res[], size_t *attr_size, u32 flags,
+		    struct netlink_ext_ack *extack)
 {
 	struct tc_action_ops *ops[TCA_ACT_MAX_PRIO] = {};
 	struct nlattr *tb[TCA_ACT_MAX_PRIO + 1];
@@ -1082,7 +1081,9 @@ int tcf_action_init(struct net *net, struct tcf_proto *tp, struct nlattr *nla,
 	for (i = 1; i <= TCA_ACT_MAX_PRIO && tb[i]; i++) {
 		struct tc_action_ops *a_o;
 
-		a_o = tc_action_load_ops(name, tb[i], rtnl_held, extack);
+		a_o = tc_action_load_ops(tb[i], flags & TCA_ACT_FLAGS_POLICE,
+					 !(flags & TCA_ACT_FLAGS_NO_RTNL),
+					 extack);
 		if (IS_ERR(a_o)) {
 			err = PTR_ERR(a_o);
 			goto err_mod;
@@ -1091,9 +1092,8 @@ int tcf_action_init(struct net *net, struct tcf_proto *tp, struct nlattr *nla,
 	}
 
 	for (i = 1; i <= TCA_ACT_MAX_PRIO && tb[i]; i++) {
-		act = tcf_action_init_1(net, tp, tb[i], est, name, ovr, bind,
-					ops[i - 1], &init_res[i - 1], rtnl_held,
-					extack);
+		act = tcf_action_init_1(net, tp, tb[i], est, ops[i - 1],
+					&init_res[i - 1], flags, extack);
 		if (IS_ERR(act)) {
 			err = PTR_ERR(act);
 			goto err;
@@ -1113,7 +1113,7 @@ int tcf_action_init(struct net *net, struct tcf_proto *tp, struct nlattr *nla,
 	goto err_mod;
 
 err:
-	tcf_action_destroy(actions, bind);
+	tcf_action_destroy(actions, flags & TCA_ACT_FLAGS_BIND);
 err_mod:
 	for (i = 0; i < TCA_ACT_MAX_PRIO; i++) {
 		if (ops[i])
@@ -1495,7 +1495,7 @@ tcf_add_notify(struct net *net, struct nlmsghdr *n, struct tc_action *actions[],
 }
 
 static int tcf_action_add(struct net *net, struct nlattr *nla,
-			  struct nlmsghdr *n, u32 portid, int ovr,
+			  struct nlmsghdr *n, u32 portid, u32 flags,
 			  struct netlink_ext_ack *extack)
 {
 	size_t attr_size = 0;
@@ -1504,8 +1504,8 @@ static int tcf_action_add(struct net *net, struct nlattr *nla,
 	int init_res[TCA_ACT_MAX_PRIO] = {};
 
 	for (loop = 0; loop < 10; loop++) {
-		ret = tcf_action_init(net, NULL, nla, NULL, NULL, ovr, 0,
-				      actions, init_res, &attr_size, true, extack);
+		ret = tcf_action_init(net, NULL, nla, NULL, actions, init_res,
+				      &attr_size, flags, extack);
 		if (ret != -EAGAIN)
 			break;
 	}
@@ -1535,7 +1535,8 @@ static int tc_ctl_action(struct sk_buff *skb, struct nlmsghdr *n,
 	struct net *net = sock_net(skb->sk);
 	struct nlattr *tca[TCA_ROOT_MAX + 1];
 	u32 portid = NETLINK_CB(skb).portid;
-	int ret = 0, ovr = 0;
+	u32 flags = 0;
+	int ret = 0;
 
 	if ((n->nlmsg_type != RTM_GETACTION) &&
 	    !netlink_capable(skb, CAP_NET_ADMIN))
@@ -1561,8 +1562,8 @@ static int tc_ctl_action(struct sk_buff *skb, struct nlmsghdr *n,
 		 * is zero) then just set this
 		 */
 		if (n->nlmsg_flags & NLM_F_REPLACE)
-			ovr = 1;
-		ret = tcf_action_add(net, tca[TCA_ACT_TAB], n, portid, ovr,
+			flags = TCA_ACT_FLAGS_REPLACE;
+		ret = tcf_action_add(net, tca[TCA_ACT_TAB], n, portid, flags,
 				     extack);
 		break;
 	case RTM_DELACTION:
diff --git a/net/sched/act_bpf.c b/net/sched/act_bpf.c
index e409a0005717..040807aa15b9 100644
--- a/net/sched/act_bpf.c
+++ b/net/sched/act_bpf.c
@@ -275,11 +275,11 @@ static void tcf_bpf_prog_fill_cfg(const struct tcf_bpf *prog,
 
 static int tcf_bpf_init(struct net *net, struct nlattr *nla,
 			struct nlattr *est, struct tc_action **act,
-			int replace, int bind, bool rtnl_held,
 			struct tcf_proto *tp, u32 flags,
 			struct netlink_ext_ack *extack)
 {
 	struct tc_action_net *tn = net_generic(net, bpf_net_id);
+	bool bind = flags & TCA_ACT_FLAGS_BIND;
 	struct nlattr *tb[TCA_ACT_BPF_MAX + 1];
 	struct tcf_chain *goto_ch = NULL;
 	struct tcf_bpf_cfg cfg, old;
@@ -317,7 +317,7 @@ static int tcf_bpf_init(struct net *net, struct nlattr *nla,
 		if (bind)
 			return 0;
 
-		if (!replace) {
+		if (!(flags & TCA_ACT_FLAGS_REPLACE)) {
 			tcf_idr_release(*act, bind);
 			return -EEXIST;
 		}
diff --git a/net/sched/act_connmark.c b/net/sched/act_connmark.c
index e19885d7fe2c..94e78ac7a748 100644
--- a/net/sched/act_connmark.c
+++ b/net/sched/act_connmark.c
@@ -96,12 +96,12 @@ static const struct nla_policy connmark_policy[TCA_CONNMARK_MAX + 1] = {
 
 static int tcf_connmark_init(struct net *net, struct nlattr *nla,
 			     struct nlattr *est, struct tc_action **a,
-			     int ovr, int bind, bool rtnl_held,
 			     struct tcf_proto *tp, u32 flags,
 			     struct netlink_ext_ack *extack)
 {
 	struct tc_action_net *tn = net_generic(net, connmark_net_id);
 	struct nlattr *tb[TCA_CONNMARK_MAX + 1];
+	bool bind = flags & TCA_ACT_FLAGS_BIND;
 	struct tcf_chain *goto_ch = NULL;
 	struct tcf_connmark_info *ci;
 	struct tc_connmark *parm;
@@ -144,7 +144,7 @@ static int tcf_connmark_init(struct net *net, struct nlattr *nla,
 		ci = to_connmark(*a);
 		if (bind)
 			return 0;
-		if (!ovr) {
+		if (!(flags & TCA_ACT_FLAGS_REPLACE)) {
 			tcf_idr_release(*a, bind);
 			return -EEXIST;
 		}
diff --git a/net/sched/act_csum.c b/net/sched/act_csum.c
index 4fa4fcb842ba..a15ec95e69c3 100644
--- a/net/sched/act_csum.c
+++ b/net/sched/act_csum.c
@@ -41,11 +41,12 @@ static unsigned int csum_net_id;
 static struct tc_action_ops act_csum_ops;
 
 static int tcf_csum_init(struct net *net, struct nlattr *nla,
-			 struct nlattr *est, struct tc_action **a, int ovr,
-			 int bind, bool rtnl_held, struct tcf_proto *tp,
+			 struct nlattr *est, struct tc_action **a,
+			 struct tcf_proto *tp,
 			 u32 flags, struct netlink_ext_ack *extack)
 {
 	struct tc_action_net *tn = net_generic(net, csum_net_id);
+	bool bind = flags & TCA_ACT_FLAGS_BIND;
 	struct tcf_csum_params *params_new;
 	struct nlattr *tb[TCA_CSUM_MAX + 1];
 	struct tcf_chain *goto_ch = NULL;
@@ -78,7 +79,7 @@ static int tcf_csum_init(struct net *net, struct nlattr *nla,
 	} else if (err > 0) {
 		if (bind)/* dont override defaults */
 			return 0;
-		if (!ovr) {
+		if (!(flags & TCA_ACT_FLAGS_REPLACE)) {
 			tcf_idr_release(*a, bind);
 			return -EEXIST;
 		}
diff --git a/net/sched/act_ct.c b/net/sched/act_ct.c
index 1b4b3514c94f..ad9df0cb4b98 100644
--- a/net/sched/act_ct.c
+++ b/net/sched/act_ct.c
@@ -1235,11 +1235,11 @@ static int tcf_ct_fill_params(struct net *net,
 
 static int tcf_ct_init(struct net *net, struct nlattr *nla,
 		       struct nlattr *est, struct tc_action **a,
-		       int replace, int bind, bool rtnl_held,
 		       struct tcf_proto *tp, u32 flags,
 		       struct netlink_ext_ack *extack)
 {
 	struct tc_action_net *tn = net_generic(net, ct_net_id);
+	bool bind = flags & TCA_ACT_FLAGS_BIND;
 	struct tcf_ct_params *params = NULL;
 	struct nlattr *tb[TCA_CT_MAX + 1];
 	struct tcf_chain *goto_ch = NULL;
@@ -1279,7 +1279,7 @@ static int tcf_ct_init(struct net *net, struct nlattr *nla,
 		if (bind)
 			return 0;
 
-		if (!replace) {
+		if (!(flags & TCA_ACT_FLAGS_REPLACE)) {
 			tcf_idr_release(*a, bind);
 			return -EEXIST;
 		}
diff --git a/net/sched/act_ctinfo.c b/net/sched/act_ctinfo.c
index b20c8ce59905..549374a2d008 100644
--- a/net/sched/act_ctinfo.c
+++ b/net/sched/act_ctinfo.c
@@ -154,11 +154,11 @@ static const struct nla_policy ctinfo_policy[TCA_CTINFO_MAX + 1] = {
 
 static int tcf_ctinfo_init(struct net *net, struct nlattr *nla,
 			   struct nlattr *est, struct tc_action **a,
-			   int ovr, int bind, bool rtnl_held,
 			   struct tcf_proto *tp, u32 flags,
 			   struct netlink_ext_ack *extack)
 {
 	struct tc_action_net *tn = net_generic(net, ctinfo_net_id);
+	bool bind = flags & TCA_ACT_FLAGS_BIND;
 	u32 dscpmask = 0, dscpstatemask, index;
 	struct nlattr *tb[TCA_CTINFO_MAX + 1];
 	struct tcf_ctinfo_params *cp_new;
@@ -221,7 +221,7 @@ static int tcf_ctinfo_init(struct net *net, struct nlattr *nla,
 	} else if (err > 0) {
 		if (bind) /* don't override defaults */
 			return 0;
-		if (!ovr) {
+		if (!(flags & TCA_ACT_FLAGS_REPLACE)) {
 			tcf_idr_release(*a, bind);
 			return -EEXIST;
 		}
diff --git a/net/sched/act_gact.c b/net/sched/act_gact.c
index 73c3926358a0..d8dce173df37 100644
--- a/net/sched/act_gact.c
+++ b/net/sched/act_gact.c
@@ -52,11 +52,11 @@ static const struct nla_policy gact_policy[TCA_GACT_MAX + 1] = {
 
 static int tcf_gact_init(struct net *net, struct nlattr *nla,
 			 struct nlattr *est, struct tc_action **a,
-			 int ovr, int bind, bool rtnl_held,
 			 struct tcf_proto *tp, u32 flags,
 			 struct netlink_ext_ack *extack)
 {
 	struct tc_action_net *tn = net_generic(net, gact_net_id);
+	bool bind = flags & TCA_ACT_FLAGS_BIND;
 	struct nlattr *tb[TCA_GACT_MAX + 1];
 	struct tcf_chain *goto_ch = NULL;
 	struct tc_gact *parm;
@@ -109,7 +109,7 @@ static int tcf_gact_init(struct net *net, struct nlattr *nla,
 	} else if (err > 0) {
 		if (bind)/* dont override defaults */
 			return 0;
-		if (!ovr) {
+		if (!(flags & TCA_ACT_FLAGS_REPLACE)) {
 			tcf_idr_release(*a, bind);
 			return -EEXIST;
 		}
diff --git a/net/sched/act_gate.c b/net/sched/act_gate.c
index a78cb7965718..7df72a4197a3 100644
--- a/net/sched/act_gate.c
+++ b/net/sched/act_gate.c
@@ -295,12 +295,12 @@ static void gate_setup_timer(struct tcf_gate *gact, u64 basetime,
 
 static int tcf_gate_init(struct net *net, struct nlattr *nla,
 			 struct nlattr *est, struct tc_action **a,
-			 int ovr, int bind, bool rtnl_held,
 			 struct tcf_proto *tp, u32 flags,
 			 struct netlink_ext_ack *extack)
 {
 	struct tc_action_net *tn = net_generic(net, gate_net_id);
 	enum tk_offsets tk_offset = TK_OFFS_TAI;
+	bool bind = flags & TCA_ACT_FLAGS_BIND;
 	struct nlattr *tb[TCA_GATE_MAX + 1];
 	struct tcf_chain *goto_ch = NULL;
 	u64 cycletime = 0, basetime = 0;
@@ -364,7 +364,7 @@ static int tcf_gate_init(struct net *net, struct nlattr *nla,
 		}
 
 		ret = ACT_P_CREATED;
-	} else if (!ovr) {
+	} else if (!(flags & TCA_ACT_FLAGS_REPLACE)) {
 		tcf_idr_release(*a, bind);
 		return -EEXIST;
 	}
diff --git a/net/sched/act_ife.c b/net/sched/act_ife.c
index a2ddea04183a..7064a365a1a9 100644
--- a/net/sched/act_ife.c
+++ b/net/sched/act_ife.c
@@ -479,11 +479,11 @@ static int populate_metalist(struct tcf_ife_info *ife, struct nlattr **tb,
 
 static int tcf_ife_init(struct net *net, struct nlattr *nla,
 			struct nlattr *est, struct tc_action **a,
-			int ovr, int bind, bool rtnl_held,
 			struct tcf_proto *tp, u32 flags,
 			struct netlink_ext_ack *extack)
 {
 	struct tc_action_net *tn = net_generic(net, ife_net_id);
+	bool bind = flags & TCA_ACT_FLAGS_BIND;
 	struct nlattr *tb[TCA_IFE_MAX + 1];
 	struct nlattr *tb2[IFE_META_MAX + 1];
 	struct tcf_chain *goto_ch = NULL;
@@ -532,7 +532,7 @@ static int tcf_ife_init(struct net *net, struct nlattr *nla,
 			kfree(p);
 			return err;
 		}
-		err = load_metalist(tb2, rtnl_held);
+		err = load_metalist(tb2, !(flags & TCA_ACT_FLAGS_NO_RTNL));
 		if (err) {
 			kfree(p);
 			return err;
@@ -560,7 +560,7 @@ static int tcf_ife_init(struct net *net, struct nlattr *nla,
 			return ret;
 		}
 		ret = ACT_P_CREATED;
-	} else if (!ovr) {
+	} else if (!(flags & TCA_ACT_FLAGS_REPLACE)) {
 		tcf_idr_release(*a, bind);
 		kfree(p);
 		return -EEXIST;
@@ -600,7 +600,8 @@ static int tcf_ife_init(struct net *net, struct nlattr *nla,
 	}
 
 	if (tb[TCA_IFE_METALST]) {
-		err = populate_metalist(ife, tb2, exists, rtnl_held);
+		err = populate_metalist(ife, tb2, exists,
+					!(flags & TCA_ACT_FLAGS_NO_RTNL));
 		if (err)
 			goto metadata_parse_err;
 	} else {
diff --git a/net/sched/act_ipt.c b/net/sched/act_ipt.c
index ac7297f42355..265b1443e252 100644
--- a/net/sched/act_ipt.c
+++ b/net/sched/act_ipt.c
@@ -94,10 +94,11 @@ static const struct nla_policy ipt_policy[TCA_IPT_MAX + 1] = {
 
 static int __tcf_ipt_init(struct net *net, unsigned int id, struct nlattr *nla,
 			  struct nlattr *est, struct tc_action **a,
-			  const struct tc_action_ops *ops, int ovr, int bind,
+			  const struct tc_action_ops *ops,
 			  struct tcf_proto *tp, u32 flags)
 {
 	struct tc_action_net *tn = net_generic(net, id);
+	bool bind = flags & TCA_ACT_FLAGS_BIND;
 	struct nlattr *tb[TCA_IPT_MAX + 1];
 	struct tcf_ipt *ipt;
 	struct xt_entry_target *td, *t;
@@ -154,7 +155,7 @@ static int __tcf_ipt_init(struct net *net, unsigned int id, struct nlattr *nla,
 		if (bind)/* dont override defaults */
 			return 0;
 
-		if (!ovr) {
+		if (!(flags & TCA_ACT_FLAGS_REPLACE)) {
 			tcf_idr_release(*a, bind);
 			return -EEXIST;
 		}
@@ -201,21 +202,21 @@ static int __tcf_ipt_init(struct net *net, unsigned int id, struct nlattr *nla,
 }
 
 static int tcf_ipt_init(struct net *net, struct nlattr *nla,
-			struct nlattr *est, struct tc_action **a, int ovr,
-			int bind, bool rtnl_held, struct tcf_proto *tp,
+			struct nlattr *est, struct tc_action **a,
+			struct tcf_proto *tp,
 			u32 flags, struct netlink_ext_ack *extack)
 {
-	return __tcf_ipt_init(net, ipt_net_id, nla, est, a, &act_ipt_ops, ovr,
-			      bind, tp, flags);
+	return __tcf_ipt_init(net, ipt_net_id, nla, est, a, &act_ipt_ops,
+			      tp, flags);
 }
 
 static int tcf_xt_init(struct net *net, struct nlattr *nla,
-		       struct nlattr *est, struct tc_action **a, int ovr,
-		       int bind, bool unlocked, struct tcf_proto *tp,
+		       struct nlattr *est, struct tc_action **a,
+		       struct tcf_proto *tp,
 		       u32 flags, struct netlink_ext_ack *extack)
 {
-	return __tcf_ipt_init(net, xt_net_id, nla, est, a, &act_xt_ops, ovr,
-			      bind, tp, flags);
+	return __tcf_ipt_init(net, xt_net_id, nla, est, a, &act_xt_ops,
+			      tp, flags);
 }
 
 static int tcf_ipt_act(struct sk_buff *skb, const struct tc_action *a,
diff --git a/net/sched/act_mirred.c b/net/sched/act_mirred.c
index 7153c67f641e..77ee80e3effc 100644
--- a/net/sched/act_mirred.c
+++ b/net/sched/act_mirred.c
@@ -91,11 +91,11 @@ static struct tc_action_ops act_mirred_ops;
 
 static int tcf_mirred_init(struct net *net, struct nlattr *nla,
 			   struct nlattr *est, struct tc_action **a,
-			   int ovr, int bind, bool rtnl_held,
 			   struct tcf_proto *tp,
 			   u32 flags, struct netlink_ext_ack *extack)
 {
 	struct tc_action_net *tn = net_generic(net, mirred_net_id);
+	bool bind = flags & TCA_ACT_FLAGS_BIND;
 	struct nlattr *tb[TCA_MIRRED_MAX + 1];
 	struct tcf_chain *goto_ch = NULL;
 	bool mac_header_xmit = false;
@@ -155,7 +155,7 @@ static int tcf_mirred_init(struct net *net, struct nlattr *nla,
 			return ret;
 		}
 		ret = ACT_P_CREATED;
-	} else if (!ovr) {
+	} else if (!(flags & TCA_ACT_FLAGS_REPLACE)) {
 		tcf_idr_release(*a, bind);
 		return -EEXIST;
 	}
diff --git a/net/sched/act_mpls.c b/net/sched/act_mpls.c
index d1486ea496a2..e4529b428cf4 100644
--- a/net/sched/act_mpls.c
+++ b/net/sched/act_mpls.c
@@ -152,11 +152,11 @@ static const struct nla_policy mpls_policy[TCA_MPLS_MAX + 1] = {
 
 static int tcf_mpls_init(struct net *net, struct nlattr *nla,
 			 struct nlattr *est, struct tc_action **a,
-			 int ovr, int bind, bool rtnl_held,
 			 struct tcf_proto *tp, u32 flags,
 			 struct netlink_ext_ack *extack)
 {
 	struct tc_action_net *tn = net_generic(net, mpls_net_id);
+	bool bind = flags & TCA_ACT_FLAGS_BIND;
 	struct nlattr *tb[TCA_MPLS_MAX + 1];
 	struct tcf_chain *goto_ch = NULL;
 	struct tcf_mpls_params *p;
@@ -255,7 +255,7 @@ static int tcf_mpls_init(struct net *net, struct nlattr *nla,
 		}
 
 		ret = ACT_P_CREATED;
-	} else if (!ovr) {
+	} else if (!(flags & TCA_ACT_FLAGS_REPLACE)) {
 		tcf_idr_release(*a, bind);
 		return -EEXIST;
 	}
diff --git a/net/sched/act_nat.c b/net/sched/act_nat.c
index 1ebd2a86d980..7dd6b586ba7f 100644
--- a/net/sched/act_nat.c
+++ b/net/sched/act_nat.c
@@ -34,11 +34,11 @@ static const struct nla_policy nat_policy[TCA_NAT_MAX + 1] = {
 };
 
 static int tcf_nat_init(struct net *net, struct nlattr *nla, struct nlattr *est,
-			struct tc_action **a, int ovr, int bind,
-			bool rtnl_held,	struct tcf_proto *tp,
+			struct tc_action **a, struct tcf_proto *tp,
 			u32 flags, struct netlink_ext_ack *extack)
 {
 	struct tc_action_net *tn = net_generic(net, nat_net_id);
+	bool bind = flags & TCA_ACT_FLAGS_BIND;
 	struct nlattr *tb[TCA_NAT_MAX + 1];
 	struct tcf_chain *goto_ch = NULL;
 	struct tc_nat *parm;
@@ -70,7 +70,7 @@ static int tcf_nat_init(struct net *net, struct nlattr *nla, struct nlattr *est,
 	} else if (err > 0) {
 		if (bind)
 			return 0;
-		if (!ovr) {
+		if (!(flags & TCA_ACT_FLAGS_REPLACE)) {
 			tcf_idr_release(*a, bind);
 			return -EEXIST;
 		}
diff --git a/net/sched/act_pedit.c b/net/sched/act_pedit.c
index b45304446e13..c6c862c459cc 100644
--- a/net/sched/act_pedit.c
+++ b/net/sched/act_pedit.c
@@ -136,11 +136,11 @@ static int tcf_pedit_key_ex_dump(struct sk_buff *skb,
 
 static int tcf_pedit_init(struct net *net, struct nlattr *nla,
 			  struct nlattr *est, struct tc_action **a,
-			  int ovr, int bind, bool rtnl_held,
 			  struct tcf_proto *tp, u32 flags,
 			  struct netlink_ext_ack *extack)
 {
 	struct tc_action_net *tn = net_generic(net, pedit_net_id);
+	bool bind = flags & TCA_ACT_FLAGS_BIND;
 	struct nlattr *tb[TCA_PEDIT_MAX + 1];
 	struct tcf_chain *goto_ch = NULL;
 	struct tc_pedit_key *keys = NULL;
@@ -198,7 +198,7 @@ static int tcf_pedit_init(struct net *net, struct nlattr *nla,
 	} else if (err > 0) {
 		if (bind)
 			goto out_free;
-		if (!ovr) {
+		if (!(flags & TCA_ACT_FLAGS_REPLACE)) {
 			ret = -EEXIST;
 			goto out_release;
 		}
diff --git a/net/sched/act_police.c b/net/sched/act_police.c
index 0fab8de176d2..832157a840fc 100644
--- a/net/sched/act_police.c
+++ b/net/sched/act_police.c
@@ -48,11 +48,11 @@ static const struct nla_policy police_policy[TCA_POLICE_MAX + 1] = {
 
 static int tcf_police_init(struct net *net, struct nlattr *nla,
 			       struct nlattr *est, struct tc_action **a,
-			       int ovr, int bind, bool rtnl_held,
 			       struct tcf_proto *tp, u32 flags,
 			       struct netlink_ext_ack *extack)
 {
 	int ret = 0, tcfp_result = TC_ACT_OK, err, size;
+	bool bind = flags & TCA_ACT_FLAGS_BIND;
 	struct nlattr *tb[TCA_POLICE_MAX + 1];
 	struct tcf_chain *goto_ch = NULL;
 	struct tc_police *parm;
@@ -97,7 +97,7 @@ static int tcf_police_init(struct net *net, struct nlattr *nla,
 		}
 		ret = ACT_P_CREATED;
 		spin_lock_init(&(to_police(*a)->tcfp_lock));
-	} else if (!ovr) {
+	} else if (!(flags & TCA_ACT_FLAGS_REPLACE)) {
 		tcf_idr_release(*a, bind);
 		return -EEXIST;
 	}
diff --git a/net/sched/act_sample.c b/net/sched/act_sample.c
index 6a0c16e4351d..230501eb9e06 100644
--- a/net/sched/act_sample.c
+++ b/net/sched/act_sample.c
@@ -34,11 +34,12 @@ static const struct nla_policy sample_policy[TCA_SAMPLE_MAX + 1] = {
 };
 
 static int tcf_sample_init(struct net *net, struct nlattr *nla,
-			   struct nlattr *est, struct tc_action **a, int ovr,
-			   int bind, bool rtnl_held, struct tcf_proto *tp,
+			   struct nlattr *est, struct tc_action **a,
+			   struct tcf_proto *tp,
 			   u32 flags, struct netlink_ext_ack *extack)
 {
 	struct tc_action_net *tn = net_generic(net, sample_net_id);
+	bool bind = flags & TCA_ACT_FLAGS_BIND;
 	struct nlattr *tb[TCA_SAMPLE_MAX + 1];
 	struct psample_group *psample_group;
 	u32 psample_group_num, rate, index;
@@ -75,7 +76,7 @@ static int tcf_sample_init(struct net *net, struct nlattr *nla,
 			return ret;
 		}
 		ret = ACT_P_CREATED;
-	} else if (!ovr) {
+	} else if (!(flags & TCA_ACT_FLAGS_REPLACE)) {
 		tcf_idr_release(*a, bind);
 		return -EEXIST;
 	}
diff --git a/net/sched/act_simple.c b/net/sched/act_simple.c
index 726cc956d06f..cbbe1861d3a2 100644
--- a/net/sched/act_simple.c
+++ b/net/sched/act_simple.c
@@ -85,11 +85,11 @@ static const struct nla_policy simple_policy[TCA_DEF_MAX + 1] = {
 
 static int tcf_simp_init(struct net *net, struct nlattr *nla,
 			 struct nlattr *est, struct tc_action **a,
-			 int ovr, int bind, bool rtnl_held,
 			 struct tcf_proto *tp, u32 flags,
 			 struct netlink_ext_ack *extack)
 {
 	struct tc_action_net *tn = net_generic(net, simp_net_id);
+	bool bind = flags & TCA_ACT_FLAGS_BIND;
 	struct nlattr *tb[TCA_DEF_MAX + 1];
 	struct tcf_chain *goto_ch = NULL;
 	struct tc_defact *parm;
@@ -147,7 +147,7 @@ static int tcf_simp_init(struct net *net, struct nlattr *nla,
 		tcf_action_set_ctrlact(*a, parm->action, goto_ch);
 		ret = ACT_P_CREATED;
 	} else {
-		if (!ovr) {
+		if (!(flags & TCA_ACT_FLAGS_REPLACE)) {
 			err = -EEXIST;
 			goto release_idr;
 		}
diff --git a/net/sched/act_skbedit.c b/net/sched/act_skbedit.c
index e5f3fb8b00e3..605418538347 100644
--- a/net/sched/act_skbedit.c
+++ b/net/sched/act_skbedit.c
@@ -96,11 +96,11 @@ static const struct nla_policy skbedit_policy[TCA_SKBEDIT_MAX + 1] = {
 
 static int tcf_skbedit_init(struct net *net, struct nlattr *nla,
 			    struct nlattr *est, struct tc_action **a,
-			    int ovr, int bind, bool rtnl_held,
 			    struct tcf_proto *tp, u32 act_flags,
 			    struct netlink_ext_ack *extack)
 {
 	struct tc_action_net *tn = net_generic(net, skbedit_net_id);
+	bool bind = act_flags & TCA_ACT_FLAGS_BIND;
 	struct tcf_skbedit_params *params_new;
 	struct nlattr *tb[TCA_SKBEDIT_MAX + 1];
 	struct tcf_chain *goto_ch = NULL;
@@ -186,7 +186,7 @@ static int tcf_skbedit_init(struct net *net, struct nlattr *nla,
 		ret = ACT_P_CREATED;
 	} else {
 		d = to_skbedit(*a);
-		if (!ovr) {
+		if (!(act_flags & TCA_ACT_FLAGS_REPLACE)) {
 			tcf_idr_release(*a, bind);
 			return -EEXIST;
 		}
diff --git a/net/sched/act_skbmod.c b/net/sched/act_skbmod.c
index 81a1c67335be..dfc109e40480 100644
--- a/net/sched/act_skbmod.c
+++ b/net/sched/act_skbmod.c
@@ -78,11 +78,12 @@ static const struct nla_policy skbmod_policy[TCA_SKBMOD_MAX + 1] = {
 
 static int tcf_skbmod_init(struct net *net, struct nlattr *nla,
 			   struct nlattr *est, struct tc_action **a,
-			   int ovr, int bind, bool rtnl_held,
 			   struct tcf_proto *tp, u32 flags,
 			   struct netlink_ext_ack *extack)
 {
 	struct tc_action_net *tn = net_generic(net, skbmod_net_id);
+	bool ovr = flags & TCA_ACT_FLAGS_REPLACE;
+	bool bind = flags & TCA_ACT_FLAGS_BIND;
 	struct nlattr *tb[TCA_SKBMOD_MAX + 1];
 	struct tcf_skbmod_params *p, *p_old;
 	struct tcf_chain *goto_ch = NULL;
diff --git a/net/sched/act_tunnel_key.c b/net/sched/act_tunnel_key.c
index 85c0d0d5b9da..d9cd174eecb7 100644
--- a/net/sched/act_tunnel_key.c
+++ b/net/sched/act_tunnel_key.c
@@ -355,11 +355,11 @@ static void tunnel_key_release_params(struct tcf_tunnel_key_params *p)
 
 static int tunnel_key_init(struct net *net, struct nlattr *nla,
 			   struct nlattr *est, struct tc_action **a,
-			   int ovr, int bind, bool rtnl_held,
 			   struct tcf_proto *tp, u32 act_flags,
 			   struct netlink_ext_ack *extack)
 {
 	struct tc_action_net *tn = net_generic(net, tunnel_key_net_id);
+	bool bind = act_flags & TCA_ACT_FLAGS_BIND;
 	struct nlattr *tb[TCA_TUNNEL_KEY_MAX + 1];
 	struct tcf_tunnel_key_params *params_new;
 	struct metadata_dst *metadata = NULL;
@@ -504,7 +504,7 @@ static int tunnel_key_init(struct net *net, struct nlattr *nla,
 		}
 
 		ret = ACT_P_CREATED;
-	} else if (!ovr) {
+	} else if (!(act_flags & TCA_ACT_FLAGS_REPLACE)) {
 		NL_SET_ERR_MSG(extack, "TC IDR already exists");
 		ret = -EEXIST;
 		goto release_tun_meta;
diff --git a/net/sched/act_vlan.c b/net/sched/act_vlan.c
index 71f2015c70ca..e4dc5a555bd8 100644
--- a/net/sched/act_vlan.c
+++ b/net/sched/act_vlan.c
@@ -114,11 +114,11 @@ static const struct nla_policy vlan_policy[TCA_VLAN_MAX + 1] = {
 
 static int tcf_vlan_init(struct net *net, struct nlattr *nla,
 			 struct nlattr *est, struct tc_action **a,
-			 int ovr, int bind, bool rtnl_held,
 			 struct tcf_proto *tp, u32 flags,
 			 struct netlink_ext_ack *extack)
 {
 	struct tc_action_net *tn = net_generic(net, vlan_net_id);
+	bool bind = flags & TCA_ACT_FLAGS_BIND;
 	struct nlattr *tb[TCA_VLAN_MAX + 1];
 	struct tcf_chain *goto_ch = NULL;
 	bool push_prio_exists = false;
@@ -223,7 +223,7 @@ static int tcf_vlan_init(struct net *net, struct nlattr *nla,
 		}
 
 		ret = ACT_P_CREATED;
-	} else if (!ovr) {
+	} else if (!(flags & TCA_ACT_FLAGS_REPLACE)) {
 		tcf_idr_release(*a, bind);
 		return -EEXIST;
 	}
diff --git a/net/sched/cls_api.c b/net/sched/cls_api.c
index c8cb59a11098..3a17eb3ebcf5 100644
--- a/net/sched/cls_api.c
+++ b/net/sched/cls_api.c
@@ -1957,6 +1957,7 @@ static int tc_new_tfilter(struct sk_buff *skb, struct nlmsghdr *n,
 	int err;
 	int tp_created;
 	bool rtnl_held = false;
+	u32 flags = 0;
 
 	if (!netlink_ns_capable(skb, net->user_ns, CAP_NET_ADMIN))
 		return -EPERM;
@@ -2120,9 +2121,12 @@ static int tc_new_tfilter(struct sk_buff *skb, struct nlmsghdr *n,
 		goto errout;
 	}
 
+	if (!(n->nlmsg_flags & NLM_F_CREATE))
+		flags |= TCA_ACT_FLAGS_REPLACE;
+	if (!rtnl_held)
+		flags |= TCA_ACT_FLAGS_NO_RTNL;
 	err = tp->ops->change(net, skb, tp, cl, t->tcm_handle, tca, &fh,
-			      n->nlmsg_flags & NLM_F_CREATE ? TCA_ACT_NOREPLACE : TCA_ACT_REPLACE,
-			      rtnl_held, extack);
+			      flags, extack);
 	if (err == 0) {
 		tfilter_notify(net, skb, n, tp, block, q, parent, fh,
 			       RTM_NEWTFILTER, false, rtnl_held);
@@ -3028,8 +3032,8 @@ void tcf_exts_destroy(struct tcf_exts *exts)
 EXPORT_SYMBOL(tcf_exts_destroy);
 
 int tcf_exts_validate(struct net *net, struct tcf_proto *tp, struct nlattr **tb,
-		      struct nlattr *rate_tlv, struct tcf_exts *exts, bool ovr,
-		      bool rtnl_held, struct netlink_ext_ack *extack)
+		      struct nlattr *rate_tlv, struct tcf_exts *exts,
+		      u32 flags, struct netlink_ext_ack *extack)
 {
 #ifdef CONFIG_NET_CLS_ACT
 	{
@@ -3040,13 +3044,15 @@ int tcf_exts_validate(struct net *net, struct tcf_proto *tp, struct nlattr **tb,
 		if (exts->police && tb[exts->police]) {
 			struct tc_action_ops *a_o;
 
-			a_o = tc_action_load_ops("police", tb[exts->police], rtnl_held, extack);
+			a_o = tc_action_load_ops(tb[exts->police], true,
+						 !(flags & TCA_ACT_FLAGS_NO_RTNL),
+						 extack);
 			if (IS_ERR(a_o))
 				return PTR_ERR(a_o);
+			flags |= TCA_ACT_FLAGS_POLICE | TCA_ACT_FLAGS_BIND;
 			act = tcf_action_init_1(net, tp, tb[exts->police],
-						rate_tlv, "police", ovr,
-						TCA_ACT_BIND, a_o, init_res,
-						rtnl_held, extack);
+						rate_tlv, a_o, init_res, flags,
+						extack);
 			module_put(a_o->owner);
 			if (IS_ERR(act))
 				return PTR_ERR(act);
@@ -3058,10 +3064,10 @@ int tcf_exts_validate(struct net *net, struct tcf_proto *tp, struct nlattr **tb,
 		} else if (exts->action && tb[exts->action]) {
 			int err;
 
+			flags |= TCA_ACT_FLAGS_BIND;
 			err = tcf_action_init(net, tp, tb[exts->action],
-					      rate_tlv, NULL, ovr, TCA_ACT_BIND,
-					      exts->actions, init_res,
-					      &attr_size, rtnl_held, extack);
+					      rate_tlv, exts->actions, init_res,
+					      &attr_size, flags, extack);
 			if (err < 0)
 				return err;
 			exts->nr_actions = err;
diff --git a/net/sched/cls_basic.c b/net/sched/cls_basic.c
index f256a7c69093..8158fc9ee1ab 100644
--- a/net/sched/cls_basic.c
+++ b/net/sched/cls_basic.c
@@ -145,12 +145,12 @@ static const struct nla_policy basic_policy[TCA_BASIC_MAX + 1] = {
 static int basic_set_parms(struct net *net, struct tcf_proto *tp,
 			   struct basic_filter *f, unsigned long base,
 			   struct nlattr **tb,
-			   struct nlattr *est, bool ovr,
+			   struct nlattr *est, u32 flags,
 			   struct netlink_ext_ack *extack)
 {
 	int err;
 
-	err = tcf_exts_validate(net, tp, tb, est, &f->exts, ovr, true, extack);
+	err = tcf_exts_validate(net, tp, tb, est, &f->exts, flags, extack);
 	if (err < 0)
 		return err;
 
@@ -169,8 +169,8 @@ static int basic_set_parms(struct net *net, struct tcf_proto *tp,
 
 static int basic_change(struct net *net, struct sk_buff *in_skb,
 			struct tcf_proto *tp, unsigned long base, u32 handle,
-			struct nlattr **tca, void **arg, bool ovr,
-			bool rtnl_held, struct netlink_ext_ack *extack)
+			struct nlattr **tca, void **arg,
+			u32 flags, struct netlink_ext_ack *extack)
 {
 	int err;
 	struct basic_head *head = rtnl_dereference(tp->root);
@@ -216,7 +216,7 @@ static int basic_change(struct net *net, struct sk_buff *in_skb,
 		goto errout;
 	}
 
-	err = basic_set_parms(net, tp, fnew, base, tb, tca[TCA_RATE], ovr,
+	err = basic_set_parms(net, tp, fnew, base, tb, tca[TCA_RATE], flags,
 			      extack);
 	if (err < 0) {
 		if (!fold)
diff --git a/net/sched/cls_bpf.c b/net/sched/cls_bpf.c
index fa739efa59f4..3b472bafdc9d 100644
--- a/net/sched/cls_bpf.c
+++ b/net/sched/cls_bpf.c
@@ -404,7 +404,7 @@ static int cls_bpf_prog_from_efd(struct nlattr **tb, struct cls_bpf_prog *prog,
 
 static int cls_bpf_set_parms(struct net *net, struct tcf_proto *tp,
 			     struct cls_bpf_prog *prog, unsigned long base,
-			     struct nlattr **tb, struct nlattr *est, bool ovr,
+			     struct nlattr **tb, struct nlattr *est, u32 flags,
 			     struct netlink_ext_ack *extack)
 {
 	bool is_bpf, is_ebpf, have_exts = false;
@@ -416,7 +416,7 @@ static int cls_bpf_set_parms(struct net *net, struct tcf_proto *tp,
 	if ((!is_bpf && !is_ebpf) || (is_bpf && is_ebpf))
 		return -EINVAL;
 
-	ret = tcf_exts_validate(net, tp, tb, est, &prog->exts, ovr, true,
+	ret = tcf_exts_validate(net, tp, tb, est, &prog->exts, flags,
 				extack);
 	if (ret < 0)
 		return ret;
@@ -455,7 +455,7 @@ static int cls_bpf_set_parms(struct net *net, struct tcf_proto *tp,
 static int cls_bpf_change(struct net *net, struct sk_buff *in_skb,
 			  struct tcf_proto *tp, unsigned long base,
 			  u32 handle, struct nlattr **tca,
-			  void **arg, bool ovr, bool rtnl_held,
+			  void **arg, u32 flags,
 			  struct netlink_ext_ack *extack)
 {
 	struct cls_bpf_head *head = rtnl_dereference(tp->root);
@@ -500,7 +500,7 @@ static int cls_bpf_change(struct net *net, struct sk_buff *in_skb,
 		goto errout;
 	prog->handle = handle;
 
-	ret = cls_bpf_set_parms(net, tp, prog, base, tb, tca[TCA_RATE], ovr,
+	ret = cls_bpf_set_parms(net, tp, prog, base, tb, tca[TCA_RATE], flags,
 				extack);
 	if (ret < 0)
 		goto errout_idr;
diff --git a/net/sched/cls_cgroup.c b/net/sched/cls_cgroup.c
index fb881144fa01..ed00001b528a 100644
--- a/net/sched/cls_cgroup.c
+++ b/net/sched/cls_cgroup.c
@@ -76,7 +76,7 @@ static void cls_cgroup_destroy_work(struct work_struct *work)
 static int cls_cgroup_change(struct net *net, struct sk_buff *in_skb,
 			     struct tcf_proto *tp, unsigned long base,
 			     u32 handle, struct nlattr **tca,
-			     void **arg, bool ovr, bool rtnl_held,
+			     void **arg, u32 flags,
 			     struct netlink_ext_ack *extack)
 {
 	struct nlattr *tb[TCA_CGROUP_MAX + 1];
@@ -108,8 +108,8 @@ static int cls_cgroup_change(struct net *net, struct sk_buff *in_skb,
 	if (err < 0)
 		goto errout;
 
-	err = tcf_exts_validate(net, tp, tb, tca[TCA_RATE], &new->exts, ovr,
-				true, extack);
+	err = tcf_exts_validate(net, tp, tb, tca[TCA_RATE], &new->exts, flags,
+				extack);
 	if (err < 0)
 		goto errout;
 
diff --git a/net/sched/cls_flow.c b/net/sched/cls_flow.c
index 87398af2715a..972303aa8edd 100644
--- a/net/sched/cls_flow.c
+++ b/net/sched/cls_flow.c
@@ -387,7 +387,7 @@ static void flow_destroy_filter_work(struct work_struct *work)
 static int flow_change(struct net *net, struct sk_buff *in_skb,
 		       struct tcf_proto *tp, unsigned long base,
 		       u32 handle, struct nlattr **tca,
-		       void **arg, bool ovr, bool rtnl_held,
+		       void **arg, u32 flags,
 		       struct netlink_ext_ack *extack)
 {
 	struct flow_head *head = rtnl_dereference(tp->root);
@@ -442,8 +442,8 @@ static int flow_change(struct net *net, struct sk_buff *in_skb,
 	if (err < 0)
 		goto err2;
 
-	err = tcf_exts_validate(net, tp, tb, tca[TCA_RATE], &fnew->exts, ovr,
-				true, extack);
+	err = tcf_exts_validate(net, tp, tb, tca[TCA_RATE], &fnew->exts, flags,
+				extack);
 	if (err < 0)
 		goto err2;
 
diff --git a/net/sched/cls_flower.c b/net/sched/cls_flower.c
index d7869a984881..23b21253b3c3 100644
--- a/net/sched/cls_flower.c
+++ b/net/sched/cls_flower.c
@@ -1915,23 +1915,22 @@ static int fl_check_assign_mask(struct cls_fl_head *head,
 static int fl_set_parms(struct net *net, struct tcf_proto *tp,
 			struct cls_fl_filter *f, struct fl_flow_mask *mask,
 			unsigned long base, struct nlattr **tb,
-			struct nlattr *est, bool ovr,
-			struct fl_flow_tmplt *tmplt, bool rtnl_held,
+			struct nlattr *est,
+			struct fl_flow_tmplt *tmplt, u32 flags,
 			struct netlink_ext_ack *extack)
 {
 	int err;
 
-	err = tcf_exts_validate(net, tp, tb, est, &f->exts, ovr, rtnl_held,
-				extack);
+	err = tcf_exts_validate(net, tp, tb, est, &f->exts, flags, extack);
 	if (err < 0)
 		return err;
 
 	if (tb[TCA_FLOWER_CLASSID]) {
 		f->res.classid = nla_get_u32(tb[TCA_FLOWER_CLASSID]);
-		if (!rtnl_held)
+		if (flags & TCA_ACT_FLAGS_NO_RTNL)
 			rtnl_lock();
 		tcf_bind_filter(tp, &f->res, base);
-		if (!rtnl_held)
+		if (flags & TCA_ACT_FLAGS_NO_RTNL)
 			rtnl_unlock();
 	}
 
@@ -1975,10 +1974,11 @@ static int fl_ht_insert_unique(struct cls_fl_filter *fnew,
 static int fl_change(struct net *net, struct sk_buff *in_skb,
 		     struct tcf_proto *tp, unsigned long base,
 		     u32 handle, struct nlattr **tca,
-		     void **arg, bool ovr, bool rtnl_held,
+		     void **arg, u32 flags,
 		     struct netlink_ext_ack *extack)
 {
 	struct cls_fl_head *head = fl_head_dereference(tp);
+	bool rtnl_held = !(flags & TCA_ACT_FLAGS_NO_RTNL);
 	struct cls_fl_filter *fold = *arg;
 	struct cls_fl_filter *fnew;
 	struct fl_flow_mask *mask;
@@ -2034,8 +2034,8 @@ static int fl_change(struct net *net, struct sk_buff *in_skb,
 		}
 	}
 
-	err = fl_set_parms(net, tp, fnew, mask, base, tb, tca[TCA_RATE], ovr,
-			   tp->chain->tmplt_priv, rtnl_held, extack);
+	err = fl_set_parms(net, tp, fnew, mask, base, tb, tca[TCA_RATE],
+			   tp->chain->tmplt_priv, flags, extack);
 	if (err)
 		goto errout;
 
diff --git a/net/sched/cls_fw.c b/net/sched/cls_fw.c
index ec945294626a..8654b0ce997c 100644
--- a/net/sched/cls_fw.c
+++ b/net/sched/cls_fw.c
@@ -198,15 +198,15 @@ static const struct nla_policy fw_policy[TCA_FW_MAX + 1] = {
 
 static int fw_set_parms(struct net *net, struct tcf_proto *tp,
 			struct fw_filter *f, struct nlattr **tb,
-			struct nlattr **tca, unsigned long base, bool ovr,
+			struct nlattr **tca, unsigned long base, u32 flags,
 			struct netlink_ext_ack *extack)
 {
 	struct fw_head *head = rtnl_dereference(tp->root);
 	u32 mask;
 	int err;
 
-	err = tcf_exts_validate(net, tp, tb, tca[TCA_RATE], &f->exts, ovr,
-				true, extack);
+	err = tcf_exts_validate(net, tp, tb, tca[TCA_RATE], &f->exts, flags,
+				extack);
 	if (err < 0)
 		return err;
 
@@ -237,8 +237,7 @@ static int fw_set_parms(struct net *net, struct tcf_proto *tp,
 static int fw_change(struct net *net, struct sk_buff *in_skb,
 		     struct tcf_proto *tp, unsigned long base,
 		     u32 handle, struct nlattr **tca, void **arg,
-		     bool ovr, bool rtnl_held,
-		     struct netlink_ext_ack *extack)
+		     u32 flags, struct netlink_ext_ack *extack)
 {
 	struct fw_head *head = rtnl_dereference(tp->root);
 	struct fw_filter *f = *arg;
@@ -277,7 +276,7 @@ static int fw_change(struct net *net, struct sk_buff *in_skb,
 			return err;
 		}
 
-		err = fw_set_parms(net, tp, fnew, tb, tca, base, ovr, extack);
+		err = fw_set_parms(net, tp, fnew, tb, tca, base, flags, extack);
 		if (err < 0) {
 			tcf_exts_destroy(&fnew->exts);
 			kfree(fnew);
@@ -326,7 +325,7 @@ static int fw_change(struct net *net, struct sk_buff *in_skb,
 	f->id = handle;
 	f->tp = tp;
 
-	err = fw_set_parms(net, tp, f, tb, tca, base, ovr, extack);
+	err = fw_set_parms(net, tp, f, tb, tca, base, flags, extack);
 	if (err < 0)
 		goto errout;
 
diff --git a/net/sched/cls_matchall.c b/net/sched/cls_matchall.c
index cafb84480bab..24f0046ce0b3 100644
--- a/net/sched/cls_matchall.c
+++ b/net/sched/cls_matchall.c
@@ -163,13 +163,12 @@ static const struct nla_policy mall_policy[TCA_MATCHALL_MAX + 1] = {
 static int mall_set_parms(struct net *net, struct tcf_proto *tp,
 			  struct cls_mall_head *head,
 			  unsigned long base, struct nlattr **tb,
-			  struct nlattr *est, bool ovr,
+			  struct nlattr *est, u32 flags,
 			  struct netlink_ext_ack *extack)
 {
 	int err;
 
-	err = tcf_exts_validate(net, tp, tb, est, &head->exts, ovr, true,
-				extack);
+	err = tcf_exts_validate(net, tp, tb, est, &head->exts, flags, extack);
 	if (err < 0)
 		return err;
 
@@ -183,13 +182,13 @@ static int mall_set_parms(struct net *net, struct tcf_proto *tp,
 static int mall_change(struct net *net, struct sk_buff *in_skb,
 		       struct tcf_proto *tp, unsigned long base,
 		       u32 handle, struct nlattr **tca,
-		       void **arg, bool ovr, bool rtnl_held,
+		       void **arg, u32 flags,
 		       struct netlink_ext_ack *extack)
 {
 	struct cls_mall_head *head = rtnl_dereference(tp->root);
 	struct nlattr *tb[TCA_MATCHALL_MAX + 1];
 	struct cls_mall_head *new;
-	u32 flags = 0;
+	u32 userflags = 0;
 	int err;
 
 	if (!tca[TCA_OPTIONS])
@@ -204,8 +203,8 @@ static int mall_change(struct net *net, struct sk_buff *in_skb,
 		return err;
 
 	if (tb[TCA_MATCHALL_FLAGS]) {
-		flags = nla_get_u32(tb[TCA_MATCHALL_FLAGS]);
-		if (!tc_flags_valid(flags))
+		userflags = nla_get_u32(tb[TCA_MATCHALL_FLAGS]);
+		if (!tc_flags_valid(userflags))
 			return -EINVAL;
 	}
 
@@ -220,14 +219,14 @@ static int mall_change(struct net *net, struct sk_buff *in_skb,
 	if (!handle)
 		handle = 1;
 	new->handle = handle;
-	new->flags = flags;
+	new->flags = userflags;
 	new->pf = alloc_percpu(struct tc_matchall_pcnt);
 	if (!new->pf) {
 		err = -ENOMEM;
 		goto err_alloc_percpu;
 	}
 
-	err = mall_set_parms(net, tp, new, base, tb, tca[TCA_RATE], ovr,
+	err = mall_set_parms(net, tp, new, base, tb, tca[TCA_RATE], flags,
 			     extack);
 	if (err)
 		goto err_set_parms;
diff --git a/net/sched/cls_route.c b/net/sched/cls_route.c
index 5efa3e7ace15..a35ab8c27866 100644
--- a/net/sched/cls_route.c
+++ b/net/sched/cls_route.c
@@ -382,7 +382,7 @@ static int route4_set_parms(struct net *net, struct tcf_proto *tp,
 			    unsigned long base, struct route4_filter *f,
 			    u32 handle, struct route4_head *head,
 			    struct nlattr **tb, struct nlattr *est, int new,
-			    bool ovr, struct netlink_ext_ack *extack)
+			    u32 flags, struct netlink_ext_ack *extack)
 {
 	u32 id = 0, to = 0, nhandle = 0x8000;
 	struct route4_filter *fp;
@@ -390,7 +390,7 @@ static int route4_set_parms(struct net *net, struct tcf_proto *tp,
 	struct route4_bucket *b;
 	int err;
 
-	err = tcf_exts_validate(net, tp, tb, est, &f->exts, ovr, true, extack);
+	err = tcf_exts_validate(net, tp, tb, est, &f->exts, flags, extack);
 	if (err < 0)
 		return err;
 
@@ -464,8 +464,8 @@ static int route4_set_parms(struct net *net, struct tcf_proto *tp,
 
 static int route4_change(struct net *net, struct sk_buff *in_skb,
 			 struct tcf_proto *tp, unsigned long base, u32 handle,
-			 struct nlattr **tca, void **arg, bool ovr,
-			 bool rtnl_held, struct netlink_ext_ack *extack)
+			 struct nlattr **tca, void **arg, u32 flags,
+			 struct netlink_ext_ack *extack)
 {
 	struct route4_head *head = rtnl_dereference(tp->root);
 	struct route4_filter __rcu **fp;
@@ -510,7 +510,7 @@ static int route4_change(struct net *net, struct sk_buff *in_skb,
 	}
 
 	err = route4_set_parms(net, tp, base, f, handle, head, tb,
-			       tca[TCA_RATE], new, ovr, extack);
+			       tca[TCA_RATE], new, flags, extack);
 	if (err < 0)
 		goto errout;
 
diff --git a/net/sched/cls_rsvp.h b/net/sched/cls_rsvp.h
index 27a4b6dbcf57..5cd9d6b143c4 100644
--- a/net/sched/cls_rsvp.h
+++ b/net/sched/cls_rsvp.h
@@ -470,9 +470,8 @@ static const struct nla_policy rsvp_policy[TCA_RSVP_MAX + 1] = {
 
 static int rsvp_change(struct net *net, struct sk_buff *in_skb,
 		       struct tcf_proto *tp, unsigned long base,
-		       u32 handle,
-		       struct nlattr **tca,
-		       void **arg, bool ovr, bool rtnl_held,
+		       u32 handle, struct nlattr **tca,
+		       void **arg, u32 flags,
 		       struct netlink_ext_ack *extack)
 {
 	struct rsvp_head *data = rtnl_dereference(tp->root);
@@ -499,7 +498,7 @@ static int rsvp_change(struct net *net, struct sk_buff *in_skb,
 	err = tcf_exts_init(&e, net, TCA_RSVP_ACT, TCA_RSVP_POLICE);
 	if (err < 0)
 		return err;
-	err = tcf_exts_validate(net, tp, tb, tca[TCA_RATE], &e, ovr, true,
+	err = tcf_exts_validate(net, tp, tb, tca[TCA_RATE], &e, flags,
 				extack);
 	if (err < 0)
 		goto errout2;
diff --git a/net/sched/cls_tcindex.c b/net/sched/cls_tcindex.c
index 5b274534264c..6efe89092b53 100644
--- a/net/sched/cls_tcindex.c
+++ b/net/sched/cls_tcindex.c
@@ -327,7 +327,7 @@ static int
 tcindex_set_parms(struct net *net, struct tcf_proto *tp, unsigned long base,
 		  u32 handle, struct tcindex_data *p,
 		  struct tcindex_filter_result *r, struct nlattr **tb,
-		  struct nlattr *est, bool ovr, struct netlink_ext_ack *extack)
+		  struct nlattr *est, u32 flags, struct netlink_ext_ack *extack)
 {
 	struct tcindex_filter_result new_filter_result, *old_r = r;
 	struct tcindex_data *cp = NULL, *oldp;
@@ -339,7 +339,7 @@ tcindex_set_parms(struct net *net, struct tcf_proto *tp, unsigned long base,
 	err = tcf_exts_init(&e, net, TCA_TCINDEX_ACT, TCA_TCINDEX_POLICE);
 	if (err < 0)
 		return err;
-	err = tcf_exts_validate(net, tp, tb, est, &e, ovr, true, extack);
+	err = tcf_exts_validate(net, tp, tb, est, &e, flags, extack);
 	if (err < 0)
 		goto errout;
 
@@ -526,8 +526,8 @@ tcindex_set_parms(struct net *net, struct tcf_proto *tp, unsigned long base,
 static int
 tcindex_change(struct net *net, struct sk_buff *in_skb,
 	       struct tcf_proto *tp, unsigned long base, u32 handle,
-	       struct nlattr **tca, void **arg, bool ovr,
-	       bool rtnl_held, struct netlink_ext_ack *extack)
+	       struct nlattr **tca, void **arg, u32 flags,
+	       struct netlink_ext_ack *extack)
 {
 	struct nlattr *opt = tca[TCA_OPTIONS];
 	struct nlattr *tb[TCA_TCINDEX_MAX + 1];
@@ -548,7 +548,7 @@ tcindex_change(struct net *net, struct sk_buff *in_skb,
 		return err;
 
 	return tcindex_set_parms(net, tp, base, handle, p, r, tb,
-				 tca[TCA_RATE], ovr, extack);
+				 tca[TCA_RATE], flags, extack);
 }
 
 static void tcindex_walk(struct tcf_proto *tp, struct tcf_walker *walker,
diff --git a/net/sched/cls_u32.c b/net/sched/cls_u32.c
index 6e1abe805448..4272814487f0 100644
--- a/net/sched/cls_u32.c
+++ b/net/sched/cls_u32.c
@@ -709,12 +709,12 @@ static const struct nla_policy u32_policy[TCA_U32_MAX + 1] = {
 static int u32_set_parms(struct net *net, struct tcf_proto *tp,
 			 unsigned long base,
 			 struct tc_u_knode *n, struct nlattr **tb,
-			 struct nlattr *est, bool ovr,
+			 struct nlattr *est, u32 flags,
 			 struct netlink_ext_ack *extack)
 {
 	int err;
 
-	err = tcf_exts_validate(net, tp, tb, est, &n->exts, ovr, true, extack);
+	err = tcf_exts_validate(net, tp, tb, est, &n->exts, flags, extack);
 	if (err < 0)
 		return err;
 
@@ -840,7 +840,7 @@ static struct tc_u_knode *u32_init_knode(struct net *net, struct tcf_proto *tp,
 
 static int u32_change(struct net *net, struct sk_buff *in_skb,
 		      struct tcf_proto *tp, unsigned long base, u32 handle,
-		      struct nlattr **tca, void **arg, bool ovr, bool rtnl_held,
+		      struct nlattr **tca, void **arg, u32 flags,
 		      struct netlink_ext_ack *extack)
 {
 	struct tc_u_common *tp_c = tp->data;
@@ -849,7 +849,7 @@ static int u32_change(struct net *net, struct sk_buff *in_skb,
 	struct tc_u32_sel *s;
 	struct nlattr *opt = tca[TCA_OPTIONS];
 	struct nlattr *tb[TCA_U32_MAX + 1];
-	u32 htid, flags = 0;
+	u32 htid, userflags = 0;
 	size_t sel_size;
 	int err;
 
@@ -868,8 +868,8 @@ static int u32_change(struct net *net, struct sk_buff *in_skb,
 		return err;
 
 	if (tb[TCA_U32_FLAGS]) {
-		flags = nla_get_u32(tb[TCA_U32_FLAGS]);
-		if (!tc_flags_valid(flags)) {
+		userflags = nla_get_u32(tb[TCA_U32_FLAGS]);
+		if (!tc_flags_valid(userflags)) {
 			NL_SET_ERR_MSG_MOD(extack, "Invalid filter flags");
 			return -EINVAL;
 		}
@@ -884,7 +884,7 @@ static int u32_change(struct net *net, struct sk_buff *in_skb,
 			return -EINVAL;
 		}
 
-		if ((n->flags ^ flags) &
+		if ((n->flags ^ userflags) &
 		    ~(TCA_CLS_FLAGS_IN_HW | TCA_CLS_FLAGS_NOT_IN_HW)) {
 			NL_SET_ERR_MSG_MOD(extack, "Key node flags do not match passed flags");
 			return -EINVAL;
@@ -895,7 +895,7 @@ static int u32_change(struct net *net, struct sk_buff *in_skb,
 			return -ENOMEM;
 
 		err = u32_set_parms(net, tp, base, new, tb,
-				    tca[TCA_RATE], ovr, extack);
+				    tca[TCA_RATE], flags, extack);
 
 		if (err) {
 			u32_destroy_key(new, false);
@@ -955,9 +955,9 @@ static int u32_change(struct net *net, struct sk_buff *in_skb,
 		ht->handle = handle;
 		ht->prio = tp->prio;
 		idr_init(&ht->handle_idr);
-		ht->flags = flags;
+		ht->flags = userflags;
 
-		err = u32_replace_hw_hnode(tp, ht, flags, extack);
+		err = u32_replace_hw_hnode(tp, ht, userflags, extack);
 		if (err) {
 			idr_remove(&tp_c->handle_idr, handle);
 			kfree(ht);
@@ -1038,7 +1038,7 @@ static int u32_change(struct net *net, struct sk_buff *in_skb,
 	RCU_INIT_POINTER(n->ht_up, ht);
 	n->handle = handle;
 	n->fshift = s->hmask ? ffs(ntohl(s->hmask)) - 1 : 0;
-	n->flags = flags;
+	n->flags = userflags;
 
 	err = tcf_exts_init(&n->exts, net, TCA_U32_ACT, TCA_U32_POLICE);
 	if (err < 0)
@@ -1060,7 +1060,7 @@ static int u32_change(struct net *net, struct sk_buff *in_skb,
 	}
 #endif
 
-	err = u32_set_parms(net, tp, base, n, tb, tca[TCA_RATE], ovr,
+	err = u32_set_parms(net, tp, base, n, tb, tca[TCA_RATE], flags,
 			    extack);
 	if (err == 0) {
 		struct tc_u_knode __rcu **ins;
