eliminate old special case handling that was messing with throttling.

add a test.

Change-Id: Iaaaf0f04f02ec54bb83a3fde9fb611e2e6809a4b
Merge remote-tracking branch 'origin/master' into HEAD

* eliminate old special case handling that was messing with throttling.

Change-Id: I438323c2d936c3f81ae09276069fca9ba54f3dd6