newly created resources should not be started

In Pacemaker, target-role defaults to 'Started', but we want to allow
consumers of the LWRPs the choice whether their newly created resource
gets started or not, and we also want to adhere to the Principle of
Least Surprise.  Therefore we stick to the intuitive semantics that

  action :create

creates the resource with target-role="Stopped" in order to prevent it
from starting immediately, whereas

  action [:create, :start]

creates the resource and then starts it.