Spin up all configured services at startup

Previously, a service wasn't spun up until there was a policy statement
that utilized a table from that service.  This made it hard to for users
to understand which services were available to them.

This change spins up all configured services at startup.

Closes-bug: 1357121
Change-Id: Icb60d6067b6aa092720592a2632accc5a7e6e6bd