diff --git a/core/java/android/net/NetworkRequest.java b/core/java/android/net/NetworkRequest.java
index 3be49d5..ee4379a 100644
--- a/core/java/android/net/NetworkRequest.java
+++ b/core/java/android/net/NetworkRequest.java
@@ -467,6 +467,19 @@
     }
 
     /**
+     * Returns true iff. the capabilities requested in this NetworkRequest are satisfied by the
+     * provided {@link NetworkCapabilities}.
+     *
+     * @param nc Capabilities that should satisfy this NetworkRequest. null capabilities do not
+     *           satisfy any request.
+     * @hide
+     */
+    @SystemApi
+    public boolean satisfiedBy(@Nullable NetworkCapabilities nc) {
+        return networkCapabilities.satisfiedByNetworkCapabilities(nc);
+    }
+
+    /**
      * @see Builder#addTransportType(int)
      */
     public boolean hasTransport(@Transport int transportType) {
diff --git a/services/core/java/com/android/server/ConnectivityService.java b/services/core/java/com/android/server/ConnectivityService.java
index c2e9c9a..4d04e74 100644
--- a/services/core/java/com/android/server/ConnectivityService.java
+++ b/services/core/java/com/android/server/ConnectivityService.java
@@ -89,7 +89,6 @@
 import android.net.NetworkAgent;
 import android.net.NetworkCapabilities;
 import android.net.NetworkConfig;
-import android.net.NetworkFactory;
 import android.net.NetworkInfo;
 import android.net.NetworkInfo.DetailedState;
 import android.net.NetworkMisc;
@@ -2836,26 +2835,11 @@
             return true;
         }
 
-        // TODO: delete when direct use of registerNetworkFactory is no longer supported.
-        private boolean maybeHandleNetworkFactoryMessage(Message msg) {
-            switch (msg.what) {
-                default:
-                    return false;
-                case NetworkFactory.EVENT_UNFULFILLABLE_REQUEST: {
-                    handleReleaseNetworkRequest((NetworkRequest) msg.obj, msg.sendingUid,
-                            /* callOnUnavailable */ true);
-                    break;
-                }
-            }
-            return true;
-        }
-
         @Override
         public void handleMessage(Message msg) {
             if (!maybeHandleAsyncChannelMessage(msg)
                     && !maybeHandleNetworkMonitorMessage(msg)
-                    && !maybeHandleNetworkAgentInfoMessage(msg)
-                    && !maybeHandleNetworkFactoryMessage(msg)) {
+                    && !maybeHandleNetworkAgentInfoMessage(msg)) {
                 maybeHandleNetworkAgentMessage(msg);
             }
         }
@@ -5808,6 +5792,19 @@
         return INetd.PERMISSION_NONE;
     }
 
+    private void updateNetworkPermissions(@NonNull final NetworkAgentInfo nai,
+            @NonNull final NetworkCapabilities newNc) {
+        final int oldPermission = getNetworkPermission(nai.networkCapabilities);
+        final int newPermission = getNetworkPermission(newNc);
+        if (oldPermission != newPermission && nai.created && !nai.isVPN()) {
+            try {
+                mNMS.setNetworkPermission(nai.network.netId, newPermission);
+            } catch (RemoteException e) {
+                loge("Exception in setNetworkPermission: " + e);
+            }
+        }
+    }
+
     /**
      * Augments the NetworkCapabilities passed in by a NetworkAgent with capabilities that are
      * maintained here that the NetworkAgent is not aware of (e.g., validated, captive portal,
@@ -5879,21 +5876,11 @@
      * @param nai the network having its capabilities updated.
      * @param nc the new network capabilities.
      */
-    private void updateCapabilities(int oldScore, NetworkAgentInfo nai, NetworkCapabilities nc) {
+    private void updateCapabilities(final int oldScore, @NonNull final NetworkAgentInfo nai,
+            @NonNull final NetworkCapabilities nc) {
         NetworkCapabilities newNc = mixInCapabilities(nai, nc);
-
         if (Objects.equals(nai.networkCapabilities, newNc)) return;
-
-        final int oldPermission = getNetworkPermission(nai.networkCapabilities);
-        final int newPermission = getNetworkPermission(newNc);
-        if (oldPermission != newPermission && nai.created && !nai.isVPN()) {
-            try {
-                mNMS.setNetworkPermission(nai.network.netId, newPermission);
-            } catch (RemoteException e) {
-                loge("Exception in setNetworkPermission: " + e);
-            }
-        }
-
+        updateNetworkPermissions(nai, newNc);
         final NetworkCapabilities prevNc = nai.getAndSetNetworkCapabilities(newNc);
 
         updateUids(nai, prevNc, newNc);
@@ -6272,6 +6259,30 @@
         }
     }
 
+    // An accumulator class to gather the list of changes that result from a rematch.
+    // TODO : enrich to represent an entire set of changes to apply.
+    private static class NetworkReassignment {
+        static class NetworkBgStatePair {
+            @NonNull final NetworkAgentInfo mNetwork;
+            final boolean mOldBackground;
+            NetworkBgStatePair(@NonNull final NetworkAgentInfo network,
+                    final boolean oldBackground) {
+                mNetwork = network;
+                mOldBackground = oldBackground;
+            }
+        }
+
+        @NonNull private final Set<NetworkBgStatePair> mRematchedNetworks = new ArraySet<>();
+
+        @NonNull Iterable<NetworkBgStatePair> getRematchedNetworks() {
+            return mRematchedNetworks;
+        }
+
+        void addRematchedNetwork(@NonNull final NetworkBgStatePair network) {
+            mRematchedNetworks.add(network);
+        }
+    }
+
     private ArrayMap<NetworkRequestInfo, NetworkAgentInfo> computeRequestReassignmentForNetwork(
             @NonNull final NetworkAgentInfo newNetwork) {
         final int score = newNetwork.getCurrentScore();
@@ -6317,8 +6328,8 @@
     //   needed. A network is needed if it is the best network for
     //   one or more NetworkRequests, or if it is a VPN.
     //
-    // - Tears down newNetwork if it just became validated
-    //   but turns out to be unneeded.
+    // - Writes into the passed reassignment object all changes that should be done for
+    //   rematching this network with all requests, to be applied later.
     //
     // NOTE: This function only adds NetworkRequests that "newNetwork" could satisfy,
     // it does not remove NetworkRequests that other Networks could better satisfy.
@@ -6326,15 +6337,22 @@
     // This function should be used when possible instead of {@code rematchAllNetworksAndRequests}
     // as it performs better by a factor of the number of Networks.
     //
+    // TODO : stop writing to the passed reassignment. This is temporarily more useful, but
+    // it's unidiomatic Java and it's hard to read.
+    //
+    // @param changes a currently-building list of changes to write to
     // @param newNetwork is the network to be matched against NetworkRequests.
     // @param now the time the rematch starts, as returned by SystemClock.elapsedRealtime();
-    private void rematchNetworkAndRequests(NetworkAgentInfo newNetwork, long now) {
+    private void rematchNetworkAndRequests(@NonNull final NetworkReassignment changes,
+            @NonNull final NetworkAgentInfo newNetwork, final long now) {
         ensureRunningOnConnectivityServiceThread();
         if (!newNetwork.everConnected) return;
         boolean isNewDefault = false;
         NetworkAgentInfo oldDefaultNetwork = null;
 
-        final boolean wasBackgroundNetwork = newNetwork.isBackgroundNetwork();
+        changes.addRematchedNetwork(new NetworkReassignment.NetworkBgStatePair(newNetwork,
+                newNetwork.isBackgroundNetwork()));
+
         final int score = newNetwork.getCurrentScore();
 
         if (VDBG || DDBG) log("rematching " + newNetwork.name());
@@ -6437,39 +6455,12 @@
         if (newNetwork.getCurrentScore() != score) {
             Slog.wtf(TAG, String.format(
                     "BUG: %s changed score during rematch: %d -> %d",
-                   newNetwork.name(), score, newNetwork.getCurrentScore()));
+                    newNetwork.name(), score, newNetwork.getCurrentScore()));
         }
 
         // Notify requested networks are available after the default net is switched, but
         // before LegacyTypeTracker sends legacy broadcasts
         for (NetworkRequestInfo nri : addedRequests) notifyNetworkAvailable(newNetwork, nri);
-
-        // Finally, process listen requests and update capabilities if the background state has
-        // changed for this network. For consistency with previous behavior, send onLost callbacks
-        // before onAvailable.
-        processNewlyLostListenRequests(newNetwork);
-
-        // Maybe the network changed background states. Update its capabilities.
-        final boolean backgroundChanged = wasBackgroundNetwork != newNetwork.isBackgroundNetwork();
-        if (backgroundChanged) {
-            final NetworkCapabilities newNc = mixInCapabilities(newNetwork,
-                    newNetwork.networkCapabilities);
-
-            final int oldPermission = getNetworkPermission(newNetwork.networkCapabilities);
-            final int newPermission = getNetworkPermission(newNc);
-            if (oldPermission != newPermission) {
-                try {
-                    mNMS.setNetworkPermission(newNetwork.network.netId, newPermission);
-                } catch (RemoteException e) {
-                    loge("Exception in setNetworkPermission: " + e);
-                }
-            }
-
-            newNetwork.getAndSetNetworkCapabilities(newNc);
-            notifyNetworkCallbacks(newNetwork, ConnectivityManager.CALLBACK_CAP_CHANGED);
-        }
-
-        processNewlySatisfiedListenRequests(newNetwork);
     }
 
     /**
@@ -6491,12 +6482,24 @@
         // scoring network and then a higher scoring network, which could produce multiple
         // callbacks.
         Arrays.sort(nais);
+        final NetworkReassignment changes = new NetworkReassignment();
         for (final NetworkAgentInfo nai : nais) {
-            rematchNetworkAndRequests(nai, now);
+            rematchNetworkAndRequests(changes, nai, now);
         }
 
         final NetworkAgentInfo newDefaultNetwork = getDefaultNetwork();
 
+        for (final NetworkReassignment.NetworkBgStatePair event : changes.getRematchedNetworks()) {
+            // Process listen requests and update capabilities if the background state has
+            // changed for this network. For consistency with previous behavior, send onLost
+            // callbacks before onAvailable.
+            processNewlyLostListenRequests(event.mNetwork);
+            if (event.mOldBackground != event.mNetwork.isBackgroundNetwork()) {
+                applyBackgroundChangeForRematch(event.mNetwork);
+            }
+            processNewlySatisfiedListenRequests(event.mNetwork);
+        }
+
         for (final NetworkAgentInfo nai : nais) {
             // Rematching may have altered the linger state of some networks, so update all linger
             // timers. updateLingerState reads the state from the network agent and does nothing
@@ -6528,6 +6531,24 @@
         }
     }
 
+    /**
+     * Apply a change in background state resulting from rematching networks with requests.
+     *
+     * During rematch, a network may change background states by starting to satisfy or stopping
+     * to satisfy a foreground request. Listens don't count for this. When a network changes
+     * background states, its capabilities need to be updated and callbacks fired for the
+     * capability change.
+     *
+     * @param nai The network that changed background states
+     */
+    private void applyBackgroundChangeForRematch(@NonNull final NetworkAgentInfo nai) {
+        final NetworkCapabilities newNc = mixInCapabilities(nai, nai.networkCapabilities);
+        if (Objects.equals(nai.networkCapabilities, newNc)) return;
+        updateNetworkPermissions(nai, newNc);
+        nai.getAndSetNetworkCapabilities(newNc);
+        notifyNetworkCallbacks(nai, ConnectivityManager.CALLBACK_CAP_CHANGED);
+    }
+
     private void updateLegacyTypeTrackerAndVpnLockdownForRematch(
             @Nullable final NetworkAgentInfo oldDefaultNetwork,
             @Nullable final NetworkAgentInfo newDefaultNetwork,