Do not run create on successive reboots

Passing policy flags to the Verify command of idmap2 was causing the
command to fail to parse and run create again even when the target and
overlay did not change. This change allows verify in scan to work
correctly again.

Bug: 127860892
Test: confirmed that create is not run on a successive reboot
Change-Id: I7b9c9d81c7aef6b4c80fb8b87a1e929e82fc3b84