diff --git a/core/java/android/net/ConnectivityManager.java b/core/java/android/net/ConnectivityManager.java
index 0832d81..f5457bd 100644
--- a/core/java/android/net/ConnectivityManager.java
+++ b/core/java/android/net/ConnectivityManager.java
@@ -939,41 +939,6 @@
         return 1;
     }
 
-    /**
-     * Removes the NET_CAPABILITY_NOT_RESTRICTED capability from the given
-     * NetworkCapabilities object if all the capabilities it provides are
-     * typically provided by restricted networks.
-     *
-     * TODO: consider:
-     * - Moving to NetworkCapabilities
-     * - Renaming it to guessRestrictedCapability and make it set the
-     *   restricted capability bit in addition to clearing it.
-     * @hide
-     */
-    public static void maybeMarkCapabilitiesRestricted(NetworkCapabilities nc) {
-        for (int capability : nc.getCapabilities()) {
-            switch (capability) {
-                case NetworkCapabilities.NET_CAPABILITY_CBS:
-                case NetworkCapabilities.NET_CAPABILITY_DUN:
-                case NetworkCapabilities.NET_CAPABILITY_EIMS:
-                case NetworkCapabilities.NET_CAPABILITY_FOTA:
-                case NetworkCapabilities.NET_CAPABILITY_IA:
-                case NetworkCapabilities.NET_CAPABILITY_IMS:
-                case NetworkCapabilities.NET_CAPABILITY_RCS:
-                case NetworkCapabilities.NET_CAPABILITY_XCAP:
-                case NetworkCapabilities.NET_CAPABILITY_NOT_RESTRICTED: //there by default
-                    continue;
-                default:
-                    // At least one capability usually provided by unrestricted
-                    // networks. Conclude that this network is unrestricted.
-                    return;
-            }
-        }
-        // All the capabilities are typically provided by restricted networks.
-        // Conclude that this network is restricted.
-        nc.removeCapability(NetworkCapabilities.NET_CAPABILITY_NOT_RESTRICTED);
-    }
-
     private NetworkCapabilities networkCapabilitiesForFeature(int networkType, String feature) {
         if (networkType == TYPE_MOBILE) {
             int cap = -1;
@@ -996,14 +961,14 @@
             }
             NetworkCapabilities netCap = new NetworkCapabilities();
             netCap.addTransportType(NetworkCapabilities.TRANSPORT_CELLULAR).addCapability(cap);
-            maybeMarkCapabilitiesRestricted(netCap);
+            netCap.maybeMarkCapabilitiesRestricted();
             return netCap;
         } else if (networkType == TYPE_WIFI) {
             if ("p2p".equals(feature)) {
                 NetworkCapabilities netCap = new NetworkCapabilities();
                 netCap.addTransportType(NetworkCapabilities.TRANSPORT_WIFI);
                 netCap.addCapability(NetworkCapabilities.NET_CAPABILITY_WIFI_P2P);
-                maybeMarkCapabilitiesRestricted(netCap);
+                netCap.maybeMarkCapabilitiesRestricted();
                 return netCap;
             }
         }
diff --git a/core/java/android/net/NetworkCapabilities.java b/core/java/android/net/NetworkCapabilities.java
index a7f9c5b..76c24ba 100644
--- a/core/java/android/net/NetworkCapabilities.java
+++ b/core/java/android/net/NetworkCapabilities.java
@@ -37,6 +37,7 @@
      * @hide
      */
     public NetworkCapabilities() {
+        mNetworkCapabilities = DEFAULT_CAPABILITIES;
     }
 
     public NetworkCapabilities(NetworkCapabilities nc) {
@@ -53,8 +54,7 @@
      * Represents the network's capabilities.  If any are specified they will be satisfied
      * by any Network that matches all of them.
      */
-    private long mNetworkCapabilities = (1 << NET_CAPABILITY_NOT_RESTRICTED) |
-            (1 << NET_CAPABILITY_TRUSTED) | (1 << NET_CAPABILITY_NOT_VPN);
+    private long mNetworkCapabilities;
 
     /**
      * Indicates this is a network that has the ability to reach the
@@ -166,6 +166,28 @@
     private static final int MAX_NET_CAPABILITY = NET_CAPABILITY_VALIDATED;
 
     /**
+     * Capabilities that are set by default when the object is constructed.
+     */
+    private static final long DEFAULT_CAPABILITIES =
+            (1 << NET_CAPABILITY_NOT_RESTRICTED) |
+            (1 << NET_CAPABILITY_TRUSTED) |
+            (1 << NET_CAPABILITY_NOT_VPN);
+
+    /**
+     * Capabilities that suggest that a network is restricted.
+     * {@see #maybeMarkCapabilitiesRestricted}.
+     */
+    private static final long RESTRICTED_CAPABILITIES =
+            (1 << NET_CAPABILITY_CBS) |
+            (1 << NET_CAPABILITY_DUN) |
+            (1 << NET_CAPABILITY_EIMS) |
+            (1 << NET_CAPABILITY_FOTA) |
+            (1 << NET_CAPABILITY_IA) |
+            (1 << NET_CAPABILITY_IMS) |
+            (1 << NET_CAPABILITY_RCS) |
+            (1 << NET_CAPABILITY_XCAP);
+
+    /**
      * Adds the given capability to this {@code NetworkCapability} instance.
      * Multiple capabilities may be applied sequentially.  Note that when searching
      * for a network to satisfy a request, all capabilities requested must be satisfied.
@@ -248,6 +270,22 @@
     }
 
     /**
+     * Removes the NET_CAPABILITY_NOT_RESTRICTED capability if all the capabilities it provides are
+     * typically provided by restricted networks.
+     *
+     * TODO: consider:
+     * - Renaming it to guessRestrictedCapability and make it set the
+     *   restricted capability bit in addition to clearing it.
+     * @hide
+     */
+    public void maybeMarkCapabilitiesRestricted() {
+        // If all the capabilities are typically provided by restricted networks, conclude that this
+        // network is restricted.
+        if ((mNetworkCapabilities & ~(DEFAULT_CAPABILITIES | RESTRICTED_CAPABILITIES)) == 0)
+            removeCapability(NET_CAPABILITY_NOT_RESTRICTED);
+    }
+
+    /**
      * Representing the transport type.  Apps should generally not care about transport.  A
      * request for a fast internet connection could be satisfied by a number of different
      * transports.  If any are specified here it will be satisfied a Network that matches
diff --git a/core/java/android/net/NetworkRequest.java b/core/java/android/net/NetworkRequest.java
index 5a09b46..4c8e080 100644
--- a/core/java/android/net/NetworkRequest.java
+++ b/core/java/android/net/NetworkRequest.java
@@ -85,7 +85,13 @@
          * Build {@link NetworkRequest} give the current set of capabilities.
          */
         public NetworkRequest build() {
-            return new NetworkRequest(mNetworkCapabilities, ConnectivityManager.TYPE_NONE,
+            // Make a copy of mNetworkCapabilities so we don't inadvertently remove NOT_RESTRICTED
+            // when later an unrestricted capability could be added to mNetworkCapabilities, in
+            // which case NOT_RESTRICTED should be returned to mNetworkCapabilities, which
+            // maybeMarkCapabilitiesRestricted() doesn't add back.
+            final NetworkCapabilities nc = new NetworkCapabilities(mNetworkCapabilities);
+            nc.maybeMarkCapabilitiesRestricted();
+            return new NetworkRequest(nc, ConnectivityManager.TYPE_NONE,
                     ConnectivityManager.REQUEST_ID_UNSET);
         }
 
diff --git a/services/core/java/com/android/server/ConnectivityService.java b/services/core/java/com/android/server/ConnectivityService.java
index 758b0fc..7ffa0b6 100644
--- a/services/core/java/com/android/server/ConnectivityService.java
+++ b/services/core/java/com/android/server/ConnectivityService.java
@@ -24,6 +24,7 @@
 import static android.net.ConnectivityManager.TYPE_VPN;
 import static android.net.ConnectivityManager.getNetworkTypeName;
 import static android.net.ConnectivityManager.isNetworkTypeValid;
+import static android.net.NetworkCapabilities.NET_CAPABILITY_NOT_RESTRICTED;
 import static android.net.NetworkPolicyManager.RULE_ALLOW_ALL;
 import static android.net.NetworkPolicyManager.RULE_REJECT_METERED;
 
@@ -3608,6 +3609,16 @@
     private void updateCapabilities(NetworkAgentInfo networkAgent,
             NetworkCapabilities networkCapabilities) {
         if (!Objects.equals(networkAgent.networkCapabilities, networkCapabilities)) {
+            if (networkAgent.networkCapabilities.hasCapability(NET_CAPABILITY_NOT_RESTRICTED) !=
+                    networkCapabilities.hasCapability(NET_CAPABILITY_NOT_RESTRICTED)) {
+                try {
+                    mNetd.setNetworkPermission(networkAgent.network.netId,
+                            networkCapabilities.hasCapability(NET_CAPABILITY_NOT_RESTRICTED) ?
+                                    null : NetworkManagementService.PERMISSION_SYSTEM);
+                } catch (RemoteException e) {
+                    loge("Exception in setNetworkPermission: " + e);
+                }
+            }
             synchronized (networkAgent) {
                 networkAgent.networkCapabilities = networkCapabilities;
             }
@@ -4037,7 +4048,10 @@
                             (networkAgent.networkMisc == null ||
                                 !networkAgent.networkMisc.allowBypass));
                 } else {
-                    mNetd.createPhysicalNetwork(networkAgent.network.netId);
+                    mNetd.createPhysicalNetwork(networkAgent.network.netId,
+                            networkAgent.networkCapabilities.hasCapability(
+                                    NET_CAPABILITY_NOT_RESTRICTED) ?
+                                    null : NetworkManagementService.PERMISSION_SYSTEM);
                 }
             } catch (Exception e) {
                 loge("Error creating network " + networkAgent.network.netId + ": "