diff --git a/rw_core/core/core.go b/rw_core/core/core.go
index 9d9f5da..43e9903 100644
--- a/rw_core/core/core.go
+++ b/rw_core/core/core.go
@@ -55,6 +55,8 @@
 			adapterMessageBus,
 			"kv-store",
 			"adapter-manager",
+			"device-manager",
+			"logical-device-manager",
 			"grpc-service",
 			"adapter-request-handler",
 		)
@@ -169,6 +171,13 @@
 	endpointMgr := kafka.NewEndpointManager(backend)
 	deviceMgr, logicalDeviceMgr := device.NewManagers(dbPath, adapterMgr, kmp, endpointMgr, cf, id, eventProxy)
 
+	// Start the device manager to load the devices. Wait until it is completed to prevent multiple loading happening
+	// triggered by logicalDeviceMgr.Start(Ctx)
+	deviceMgr.Start(ctx)
+
+	// Start the logical device manager to load the logical devices.
+	logicalDeviceMgr.Start(ctx)
+
 	// register kafka RPC handler
 	registerAdapterRequestHandlers(ctx, kmp, deviceMgr, adapterMgr, cf, "adapter-request-handler")
 
diff --git a/rw_core/core/device/agent.go b/rw_core/core/device/agent.go
index 6e32bfe..22ed4c4 100755
--- a/rw_core/core/device/agent.go
+++ b/rw_core/core/device/agent.go
@@ -71,8 +71,8 @@
 	stopReconcilingMutex sync.RWMutex
 	config               *config.RWCoreFlags
 
-	flowLoader           *flow.Loader
-	groupLoader          *group.Loader
+	flowCache            *flow.Cache
+	groupCache           *group.Cache
 	portLoader           *port.Loader
 	transientStateLoader *transientstate.Loader
 }
@@ -98,8 +98,8 @@
 		device:               proto.Clone(device).(*voltha.Device),
 		requestQueue:         coreutils.NewRequestQueue(),
 		config:               deviceMgr.config,
-		flowLoader:           flow.NewLoader(dbPath.SubPath("flows").Proxy(deviceID)),
-		groupLoader:          group.NewLoader(dbPath.SubPath("groups").Proxy(deviceID)),
+		flowCache:            flow.NewCache(),
+		groupCache:           group.NewCache(),
 		portLoader:           port.NewLoader(dbPath.SubPath("ports").Proxy(deviceID)),
 		transientStateLoader: transientstate.NewLoader(dbPath.SubPath("core").Proxy("transientstate"), deviceID),
 	}
@@ -108,7 +108,7 @@
 // start() saves the device to the data model and registers for callbacks on that device if deviceToCreate!=nil.
 // Otherwise, it will load the data from the dB and setup the necessary callbacks and proxies. Returns the device that
 // was started.
-func (agent *Agent) start(ctx context.Context, deviceToCreate *voltha.Device) (*voltha.Device, error) {
+func (agent *Agent) start(ctx context.Context, deviceExist bool, deviceToCreate *voltha.Device) (*voltha.Device, error) {
 	needToStart := false
 	if agent.startOnce.Do(func() { needToStart = true }); !needToStart {
 		return agent.getDeviceReadOnly(ctx)
@@ -121,23 +121,21 @@
 			}
 		}
 	}()
-
-	var device *voltha.Device
-	if deviceToCreate == nil {
-		// Load the existing device
-		device := &voltha.Device{}
-		have, err := agent.dbProxy.Get(ctx, agent.deviceID, device)
-		if err != nil {
-			return nil, err
-		} else if !have {
-			return nil, status.Errorf(codes.NotFound, "device-%s", agent.deviceID)
+	if deviceExist {
+		device := deviceToCreate
+		if device == nil {
+			// Load from dB
+			device = &voltha.Device{}
+			have, err := agent.dbProxy.Get(ctx, agent.deviceID, device)
+			if err != nil {
+				return nil, err
+			} else if !have {
+				return nil, status.Errorf(codes.NotFound, "device-%s", agent.deviceID)
+			}
 		}
-
 		agent.deviceType = device.Adapter
 		agent.device = proto.Clone(device).(*voltha.Device)
-		// load the flows and groups from KV to cache
-		agent.flowLoader.Load(ctx)
-		agent.groupLoader.Load(ctx)
+		// load the ports from KV to cache
 		agent.portLoader.Load(ctx)
 		agent.transientStateLoader.Load(ctx)
 
@@ -154,7 +152,7 @@
 		// Assumption is that AdminState, FlowGroups, and Flows are uninitialized since this
 		// is a new device, so populate them here before passing the device to ldProxy.Set.
 		// agent.deviceId will also have been set during newAgent().
-		device = (proto.Clone(deviceToCreate)).(*voltha.Device)
+		device := (proto.Clone(deviceToCreate)).(*voltha.Device)
 		device.Id = agent.deviceID
 		device.AdminState = voltha.AdminState_PREPROVISIONED
 		currState = device.AdminState
@@ -229,8 +227,6 @@
 
 	agent.deviceType = device.Adapter
 	agent.device = device
-	agent.flowLoader.Load(ctx)
-	agent.groupLoader.Load(ctx)
 	agent.portLoader.Load(ctx)
 	agent.transientStateLoader.Load(ctx)
 
diff --git a/rw_core/core/device/agent_flow.go b/rw_core/core/device/agent_flow.go
index 3b04c02..2ac9bd7 100644
--- a/rw_core/core/device/agent_flow.go
+++ b/rw_core/core/device/agent_flow.go
@@ -33,10 +33,10 @@
 
 // listDeviceFlows returns device flows
 func (agent *Agent) listDeviceFlows() map[uint64]*ofp.OfpFlowStats {
-	flowIDs := agent.flowLoader.ListIDs()
+	flowIDs := agent.flowCache.ListIDs()
 	flows := make(map[uint64]*ofp.OfpFlowStats, len(flowIDs))
 	for flowID := range flowIDs {
-		if flowHandle, have := agent.flowLoader.Lock(flowID); have {
+		if flowHandle, have := agent.flowCache.Lock(flowID); have {
 			flows[flowID] = flowHandle.GetReadOnly()
 			flowHandle.Unlock()
 		}
@@ -69,7 +69,7 @@
 	flowsToAdd := make([]*ofp.OfpFlowStats, 0)
 	flowsToDelete := make([]*ofp.OfpFlowStats, 0)
 	for _, flow := range newFlows {
-		flowHandle, created, err := agent.flowLoader.LockOrCreate(ctx, flow)
+		flowHandle, created, err := agent.flowCache.LockOrCreate(ctx, flow)
 		if err != nil {
 			desc = err.Error()
 			agent.logDeviceUpdate(ctx, "addFlowsToAdapter", nil, nil, operStatus, &desc)
@@ -167,7 +167,7 @@
 		return coreutils.DoneResponse(), status.Errorf(codes.FailedPrecondition, "non-existent-device-type-%s", device.Type)
 	}
 	for _, flow := range flowsToDel {
-		if flowHandle, have := agent.flowLoader.Lock(flow.Id); have {
+		if flowHandle, have := agent.flowCache.Lock(flow.Id); have {
 			// Update the store and cache
 			if err := flowHandle.Delete(ctx); err != nil {
 				flowHandle.Unlock()
@@ -245,7 +245,7 @@
 	flowsToAdd := make([]*ofp.OfpFlowStats, 0, len(updatedFlows))
 	flowsToDelete := make([]*ofp.OfpFlowStats, 0, len(updatedFlows))
 	for _, flow := range updatedFlows {
-		if flowHandle, have := agent.flowLoader.Lock(flow.Id); have {
+		if flowHandle, have := agent.flowCache.Lock(flow.Id); have {
 			flowToDelete := flowHandle.GetReadOnly()
 			// Update the store and cache
 			if err := flowHandle.Update(ctx, flow); err != nil {
@@ -318,8 +318,8 @@
 func (agent *Agent) filterOutFlows(ctx context.Context, uniPort uint32, flowMetadata *voltha.FlowMetadata) error {
 	var flowsToDelete []*ofp.OfpFlowStats
 	// If an existing flow has the uniPort as an InPort or OutPort or as a Tunnel ID then it needs to be removed
-	for flowID := range agent.flowLoader.ListIDs() {
-		if flowHandle, have := agent.flowLoader.Lock(flowID); have {
+	for flowID := range agent.flowCache.ListIDs() {
+		if flowHandle, have := agent.flowCache.Lock(flowID); have {
 			flow := flowHandle.GetReadOnly()
 			if flow != nil && (fu.GetInPort(flow) == uniPort || fu.GetOutPort(flow) == uniPort || fu.GetTunnelId(flow) == uint64(uniPort)) {
 				flowsToDelete = append(flowsToDelete, flow)
@@ -353,8 +353,8 @@
 
 	defer agent.logDeviceUpdate(ctx, "deleteAllFlows", nil, nil, operStatus, &desc)
 
-	for flowID := range agent.flowLoader.ListIDs() {
-		if flowHandle, have := agent.flowLoader.Lock(flowID); have {
+	for flowID := range agent.flowCache.ListIDs() {
+		if flowHandle, have := agent.flowCache.Lock(flowID); have {
 			// Update the store and cache
 			if err := flowHandle.Delete(ctx); err != nil {
 				flowHandle.Unlock()
diff --git a/rw_core/core/device/agent_group.go b/rw_core/core/device/agent_group.go
index 5db0ea5..67fa74c 100644
--- a/rw_core/core/device/agent_group.go
+++ b/rw_core/core/device/agent_group.go
@@ -33,10 +33,10 @@
 
 // listDeviceGroups returns logical device flow groups
 func (agent *Agent) listDeviceGroups() map[uint32]*ofp.OfpGroupEntry {
-	groupIDs := agent.groupLoader.ListIDs()
+	groupIDs := agent.groupCache.ListIDs()
 	groups := make(map[uint32]*ofp.OfpGroupEntry, len(groupIDs))
 	for groupID := range groupIDs {
-		if groupHandle, have := agent.groupLoader.Lock(groupID); have {
+		if groupHandle, have := agent.groupCache.Lock(groupID); have {
 			groups[groupID] = groupHandle.GetReadOnly()
 			groupHandle.Unlock()
 		}
@@ -71,7 +71,7 @@
 	groupsToAdd := make([]*ofp.OfpGroupEntry, 0)
 	groupsToDelete := make([]*ofp.OfpGroupEntry, 0)
 	for _, group := range newGroups {
-		groupHandle, created, err := agent.groupLoader.LockOrCreate(ctx, group)
+		groupHandle, created, err := agent.groupCache.LockOrCreate(ctx, group)
 		if err != nil {
 			desc = err.Error()
 			agent.logDeviceUpdate(ctx, "addGroupsToAdapter", nil, nil, operStatus, &desc)
@@ -170,7 +170,7 @@
 	}
 
 	for _, group := range groupsToDel {
-		if groupHandle, have := agent.groupLoader.Lock(group.Desc.GroupId); have {
+		if groupHandle, have := agent.groupCache.Lock(group.Desc.GroupId); have {
 			// Update the store and cache
 			if err := groupHandle.Delete(ctx); err != nil {
 				groupHandle.Unlock()
@@ -248,7 +248,7 @@
 
 	groupsToUpdate := make([]*ofp.OfpGroupEntry, 0)
 	for _, group := range updatedGroups {
-		if groupHandle, have := agent.groupLoader.Lock(group.Desc.GroupId); have {
+		if groupHandle, have := agent.groupCache.Lock(group.Desc.GroupId); have {
 			// Update the store and cache
 			if err := groupHandle.Update(ctx, group); err != nil {
 				groupHandle.Unlock()
diff --git a/rw_core/core/device/agent_test.go b/rw_core/core/device/agent_test.go
index daf2508..88d901d 100755
--- a/rw_core/core/device/agent_test.go
+++ b/rw_core/core/device/agent_test.go
@@ -174,7 +174,7 @@
 	deviceMgr := dat.deviceMgr
 	clonedDevice := proto.Clone(dat.device).(*voltha.Device)
 	deviceAgent := newAgent(deviceMgr.adapterProxy, clonedDevice, deviceMgr, deviceMgr.dbPath, deviceMgr.dProxy, deviceMgr.defaultTimeout)
-	d, err := deviceAgent.start(context.TODO(), clonedDevice)
+	d, err := deviceAgent.start(context.TODO(), false, clonedDevice)
 	assert.Nil(t, err)
 	assert.NotNil(t, d)
 	for _, port := range dat.devicePorts {
diff --git a/rw_core/core/device/flow/cache.go b/rw_core/core/device/flow/cache.go
new file mode 100644
index 0000000..b4e358e
--- /dev/null
+++ b/rw_core/core/device/flow/cache.go
@@ -0,0 +1,148 @@
+/*
+ * Copyright 2018-present Open Networking Foundation
+
+ * Licensed under the Apache License, Version 2.0 (the "License");
+ * you may not use this file except in compliance with the License.
+ * You may obtain a copy of the License at
+
+ * http://www.apache.org/licenses/LICENSE-2.0
+
+ * Unless required by applicable law or agreed to in writing, software
+ * distributed under the License is distributed on an "AS IS" BASIS,
+ * WITHOUT WARRANTIES OR CONDITIONS OF ANY KIND, either express or implied.
+ * See the License for the specific language governing permissions and
+ * limitations under the License.
+ */
+
+package flow
+
+import (
+	"context"
+	"sync"
+
+	ofp "github.com/opencord/voltha-protos/v4/go/openflow_13"
+)
+
+// Cache hides all low-level locking & synchronization related to flow state updates
+type Cache struct {
+	// this lock protects the flows map, it does not protect individual flows
+	lock  sync.RWMutex
+	flows map[uint64]*chunk
+}
+
+// chunk keeps a flow and the lock for this flow
+type chunk struct {
+	// this lock is used to synchronize all access to the flow, and also to the "deleted" variable
+	lock    sync.Mutex
+	deleted bool
+
+	flow *ofp.OfpFlowStats
+}
+
+func NewCache() *Cache {
+	return &Cache{
+		flows: make(map[uint64]*chunk),
+	}
+}
+
+// LockOrCreate locks this flow if it exists, or creates a new flow if it does not.
+// In the case of flow creation, the provided "flow" must not be modified afterwards.
+func (cache *Cache) LockOrCreate(ctx context.Context, flow *ofp.OfpFlowStats) (*Handle, bool, error) {
+	// try to use read lock instead of full lock if possible
+	if handle, have := cache.Lock(flow.Id); have {
+		return handle, false, nil
+	}
+
+	cache.lock.Lock()
+	entry, have := cache.flows[flow.Id]
+	if !have {
+		entry := &chunk{flow: flow}
+		cache.flows[flow.Id] = entry
+		entry.lock.Lock()
+		cache.lock.Unlock()
+
+		return &Handle{loader: cache, chunk: entry}, true, nil
+	}
+	cache.lock.Unlock()
+
+	entry.lock.Lock()
+	if entry.deleted {
+		entry.lock.Unlock()
+		return cache.LockOrCreate(ctx, flow)
+	}
+	return &Handle{loader: cache, chunk: entry}, false, nil
+}
+
+// Lock acquires the lock for this flow, and returns a handle which can be used to access the flow until it's unlocked.
+// This handle ensures that the flow cannot be accessed if the lock is not held.
+// Returns false if the flow is not present.
+// TODO: consider accepting a ctx and aborting the lock attempt on cancellation
+func (cache *Cache) Lock(id uint64) (*Handle, bool) {
+	cache.lock.RLock()
+	entry, have := cache.flows[id]
+	cache.lock.RUnlock()
+
+	if !have {
+		return nil, false
+	}
+
+	entry.lock.Lock()
+	if entry.deleted {
+		entry.lock.Unlock()
+		return cache.Lock(id)
+	}
+	return &Handle{loader: cache, chunk: entry}, true
+}
+
+// Handle is allocated for each Lock() call, all modifications are made using it, and it is invalidated by Unlock()
+// This enforces correct Lock()-Usage()-Unlock() ordering.
+type Handle struct {
+	loader *Cache
+	chunk  *chunk
+}
+
+// GetReadOnly returns an *ofp.OfpFlowStats which MUST NOT be modified externally, but which is safe to keep indefinitely
+func (h *Handle) GetReadOnly() *ofp.OfpFlowStats {
+	return h.chunk.flow
+}
+
+// Update updates an existing flow in cache.
+// The provided "flow" must not be modified afterwards.
+func (h *Handle) Update(ctx context.Context, flow *ofp.OfpFlowStats) error {
+	h.chunk.flow = flow
+	return nil
+}
+
+// Delete removes the flow from the cache
+func (h *Handle) Delete(ctx context.Context) error {
+	h.chunk.deleted = true
+
+	h.loader.lock.Lock()
+	delete(h.loader.flows, h.chunk.flow.Id)
+	h.loader.lock.Unlock()
+
+	h.Unlock()
+	return nil
+}
+
+// Unlock releases the lock on the flow
+func (h *Handle) Unlock() {
+	if h.chunk != nil {
+		h.chunk.lock.Unlock()
+		h.chunk = nil // attempting to access the flow through this handle in future will panic
+	}
+}
+
+// ListIDs returns a snapshot of all the managed flow IDs
+// TODO: iterating through flows safely is expensive now, since all flows are stored & locked separately
+//       should avoid this where possible
+func (cache *Cache) ListIDs() map[uint64]struct{} {
+	cache.lock.RLock()
+	defer cache.lock.RUnlock()
+	// copy the IDs so caller can safely iterate
+	ret := make(map[uint64]struct{}, len(cache.flows))
+	for id := range cache.flows {
+		ret[id] = struct{}{}
+	}
+	return ret
+}
diff --git a/rw_core/core/device/flow/loader_test.go b/rw_core/core/device/flow/cache_test.go
similarity index 90%
rename from rw_core/core/device/flow/loader_test.go
rename to rw_core/core/device/flow/cache_test.go
index 536a447..a418904 100644
--- a/rw_core/core/device/flow/loader_test.go
+++ b/rw_core/core/device/flow/cache_test.go
@@ -29,14 +29,14 @@
 
 // TestLoadersIdentical ensures that the group, flow, and meter loaders always have an identical implementation.
 func TestLoadersIdentical(t *testing.T) {
-	types := []string{"flow", "group", "meter", "port", "logical_port"}
+	types := []string{"flow", "group", "meter"}
 
 	identical := [][]string{
-		{`ofp\.OfpFlowStats`, `ofp\.OfpGroupEntry`, `ofp\.OfpMeterEntry`, `voltha\.Port`, `voltha\.LogicalPort`},
-		{`\.Id`, `\.Desc\.GroupId`, `\.Config\.MeterId`, `\.PortNo`, `\.OfpPort\.PortNo`},
-		{`uint64`, `uint32`, `uint32`, `uint32`, `uint32`},
-		{`Flow`, `Group`, `Meter`, `Port`, `Port`},
-		{`flow`, `group`, `meter`, `port`, `port|logical_port`},
+		{`ofp\.OfpFlowStats`, `ofp\.OfpGroupEntry`, `ofp\.OfpMeterEntry`},
+		{`\.Id`, `\.Desc\.GroupId`, `\.Config\.MeterId`},
+		{`uint64`, `uint32`, `uint32`},
+		{`Flow`, `Group`, `Meter`},
+		{`flow`, `group`, `meter`},
 	}
 
 	regexes := make([][]*regexp.Regexp, len(identical[0]))
@@ -52,8 +52,8 @@
 
 	for i := 1; i < len(types); i++ {
 		if err := compare(regexes[0], regexes[i],
-			"../"+types[0]+"/loader.go",
-			"../"+types[i]+"/loader.go"); err != nil {
+			"../"+types[0]+"/cache.go",
+			"../"+types[i]+"/cache.go"); err != nil {
 			t.Error(err)
 			return
 		}
diff --git a/rw_core/core/device/flow/loader.go b/rw_core/core/device/flow/loader.go
deleted file mode 100644
index 6455aed..0000000
--- a/rw_core/core/device/flow/loader.go
+++ /dev/null
@@ -1,187 +0,0 @@
-/*
- * Copyright 2018-present Open Networking Foundation
-
- * Licensed under the Apache License, Version 2.0 (the "License");
- * you may not use this file except in compliance with the License.
- * You may obtain a copy of the License at
-
- * http://www.apache.org/licenses/LICENSE-2.0
-
- * Unless required by applicable law or agreed to in writing, software
- * distributed under the License is distributed on an "AS IS" BASIS,
- * WITHOUT WARRANTIES OR CONDITIONS OF ANY KIND, either express or implied.
- * See the License for the specific language governing permissions and
- * limitations under the License.
- */
-
-package flow
-
-import (
-	"context"
-	"fmt"
-	"sync"
-
-	"github.com/opencord/voltha-go/db/model"
-	"github.com/opencord/voltha-lib-go/v4/pkg/log"
-	ofp "github.com/opencord/voltha-protos/v4/go/openflow_13"
-	"google.golang.org/grpc/codes"
-	"google.golang.org/grpc/status"
-)
-
-// Loader hides all low-level locking & synchronization related to flow state updates
-type Loader struct {
-	dbProxy *model.Proxy
-	// this lock protects the flows map, it does not protect individual flows
-	lock  sync.RWMutex
-	flows map[uint64]*chunk
-}
-
-// chunk keeps a flow and the lock for this flow
-type chunk struct {
-	// this lock is used to synchronize all access to the flow, and also to the "deleted" variable
-	lock    sync.Mutex
-	deleted bool
-
-	flow *ofp.OfpFlowStats
-}
-
-func NewLoader(dbProxy *model.Proxy) *Loader {
-	return &Loader{
-		dbProxy: dbProxy,
-		flows:   make(map[uint64]*chunk),
-	}
-}
-
-// Load queries existing flows from the kv,
-// and should only be called once when first created.
-func (loader *Loader) Load(ctx context.Context) {
-	loader.lock.Lock()
-	defer loader.lock.Unlock()
-
-	var flows []*ofp.OfpFlowStats
-	if err := loader.dbProxy.List(ctx, &flows); err != nil {
-		logger.Errorw(ctx, "failed-to-list-flows-from-cluster-data-proxy", log.Fields{"error": err})
-		return
-	}
-	for _, flow := range flows {
-		loader.flows[flow.Id] = &chunk{flow: flow}
-	}
-}
-
-// LockOrCreate locks this flow if it exists, or creates a new flow if it does not.
-// In the case of flow creation, the provided "flow" must not be modified afterwards.
-func (loader *Loader) LockOrCreate(ctx context.Context, flow *ofp.OfpFlowStats) (*Handle, bool, error) {
-	// try to use read lock instead of full lock if possible
-	if handle, have := loader.Lock(flow.Id); have {
-		return handle, false, nil
-	}
-
-	loader.lock.Lock()
-	entry, have := loader.flows[flow.Id]
-	if !have {
-		entry := &chunk{flow: flow}
-		loader.flows[flow.Id] = entry
-		entry.lock.Lock()
-		loader.lock.Unlock()
-
-		if err := loader.dbProxy.Set(ctx, fmt.Sprint(flow.Id), flow); err != nil {
-			// revert the map
-			loader.lock.Lock()
-			delete(loader.flows, flow.Id)
-			loader.lock.Unlock()
-
-			entry.deleted = true
-			entry.lock.Unlock()
-			return nil, false, err
-		}
-		return &Handle{loader: loader, chunk: entry}, true, nil
-	}
-	loader.lock.Unlock()
-
-	entry.lock.Lock()
-	if entry.deleted {
-		entry.lock.Unlock()
-		return loader.LockOrCreate(ctx, flow)
-	}
-	return &Handle{loader: loader, chunk: entry}, false, nil
-}
-
-// Lock acquires the lock for this flow, and returns a handle which can be used to access the flow until it's unlocked.
-// This handle ensures that the flow cannot be accessed if the lock is not held.
-// Returns false if the flow is not present.
-// TODO: consider accepting a ctx and aborting the lock attempt on cancellation
-func (loader *Loader) Lock(id uint64) (*Handle, bool) {
-	loader.lock.RLock()
-	entry, have := loader.flows[id]
-	loader.lock.RUnlock()
-
-	if !have {
-		return nil, false
-	}
-
-	entry.lock.Lock()
-	if entry.deleted {
-		entry.lock.Unlock()
-		return loader.Lock(id)
-	}
-	return &Handle{loader: loader, chunk: entry}, true
-}
-
-// Handle is allocated for each Lock() call, all modifications are made using it, and it is invalidated by Unlock()
-// This enforces correct Lock()-Usage()-Unlock() ordering.
-type Handle struct {
-	loader *Loader
-	chunk  *chunk
-}
-
-// GetReadOnly returns an *ofp.OfpFlowStats which MUST NOT be modified externally, but which is safe to keep indefinitely
-func (h *Handle) GetReadOnly() *ofp.OfpFlowStats {
-	return h.chunk.flow
-}
-
-// Update updates an existing flow in the kv.
-// The provided "flow" must not be modified afterwards.
-func (h *Handle) Update(ctx context.Context, flow *ofp.OfpFlowStats) error {
-	if err := h.loader.dbProxy.Set(ctx, fmt.Sprint(flow.Id), flow); err != nil {
-		return status.Errorf(codes.Internal, "failed-update-flow-%v: %s", flow.Id, err)
-	}
-	h.chunk.flow = flow
-	return nil
-}
-
-// Delete removes the device from the kv
-func (h *Handle) Delete(ctx context.Context) error {
-	if err := h.loader.dbProxy.Remove(ctx, fmt.Sprint(h.chunk.flow.Id)); err != nil {
-		return fmt.Errorf("couldnt-delete-flow-from-store-%v", h.chunk.flow.Id)
-	}
-	h.chunk.deleted = true
-
-	h.loader.lock.Lock()
-	delete(h.loader.flows, h.chunk.flow.Id)
-	h.loader.lock.Unlock()
-
-	h.Unlock()
-	return nil
-}
-
-// Unlock releases the lock on the flow
-func (h *Handle) Unlock() {
-	if h.chunk != nil {
-		h.chunk.lock.Unlock()
-		h.chunk = nil // attempting to access the flow through this handle in future will panic
-	}
-}
-
-// ListIDs returns a snapshot of all the managed flow IDs
-// TODO: iterating through flows safely is expensive now, since all flows are stored & locked separately
-//       should avoid this where possible
-func (loader *Loader) ListIDs() map[uint64]struct{} {
-	loader.lock.RLock()
-	defer loader.lock.RUnlock()
-	// copy the IDs so caller can safely iterate
-	ret := make(map[uint64]struct{}, len(loader.flows))
-	for id := range loader.flows {
-		ret[id] = struct{}{}
-	}
-	return ret
-}
diff --git a/rw_core/core/device/group/cache.go b/rw_core/core/device/group/cache.go
new file mode 100644
index 0000000..eb6a5a3
--- /dev/null
+++ b/rw_core/core/device/group/cache.go
@@ -0,0 +1,148 @@
+/*
+ * Copyright 2018-present Open Networking Foundation
+
+ * Licensed under the Apache License, Version 2.0 (the "License");
+ * you may not use this file except in compliance with the License.
+ * You may obtain a copy of the License at
+
+ * http://www.apache.org/licenses/LICENSE-2.0
+
+ * Unless required by applicable law or agreed to in writing, software
+ * distributed under the License is distributed on an "AS IS" BASIS,
+ * WITHOUT WARRANTIES OR CONDITIONS OF ANY KIND, either express or implied.
+ * See the License for the specific language governing permissions and
+ * limitations under the License.
+ */
+
+package group
+
+import (
+	"context"
+	"sync"
+
+	ofp "github.com/opencord/voltha-protos/v4/go/openflow_13"
+)
+
+// Cache hides all low-level locking & synchronization related to group state updates
+type Cache struct {
+	// this lock protects the groups map, it does not protect individual groups
+	lock   sync.RWMutex
+	groups map[uint32]*chunk
+}
+
+// chunk keeps a group and the lock for this group
+type chunk struct {
+	// this lock is used to synchronize all access to the group, and also to the "deleted" variable
+	lock    sync.Mutex
+	deleted bool
+
+	group *ofp.OfpGroupEntry
+}
+
+func NewCache() *Cache {
+	return &Cache{
+		groups: make(map[uint32]*chunk),
+	}
+}
+
+// LockOrCreate locks this group if it exists, or creates a new group if it does not.
+// In the case of group creation, the provided "group" must not be modified afterwards.
+func (cache *Cache) LockOrCreate(ctx context.Context, group *ofp.OfpGroupEntry) (*Handle, bool, error) {
+	// try to use read lock instead of full lock if possible
+	if handle, have := cache.Lock(group.Desc.GroupId); have {
+		return handle, false, nil
+	}
+
+	cache.lock.Lock()
+	entry, have := cache.groups[group.Desc.GroupId]
+	if !have {
+		entry := &chunk{group: group}
+		cache.groups[group.Desc.GroupId] = entry
+		entry.lock.Lock()
+		cache.lock.Unlock()
+
+		return &Handle{loader: cache, chunk: entry}, true, nil
+	}
+	cache.lock.Unlock()
+
+	entry.lock.Lock()
+	if entry.deleted {
+		entry.lock.Unlock()
+		return cache.LockOrCreate(ctx, group)
+	}
+	return &Handle{loader: cache, chunk: entry}, false, nil
+}
+
+// Lock acquires the lock for this group, and returns a handle which can be used to access the group until it's unlocked.
+// This handle ensures that the group cannot be accessed if the lock is not held.
+// Returns false if the group is not present.
+// TODO: consider accepting a ctx and aborting the lock attempt on cancellation
+func (cache *Cache) Lock(id uint32) (*Handle, bool) {
+	cache.lock.RLock()
+	entry, have := cache.groups[id]
+	cache.lock.RUnlock()
+
+	if !have {
+		return nil, false
+	}
+
+	entry.lock.Lock()
+	if entry.deleted {
+		entry.lock.Unlock()
+		return cache.Lock(id)
+	}
+	return &Handle{loader: cache, chunk: entry}, true
+}
+
+// Handle is allocated for each Lock() call, all modifications are made using it, and it is invalidated by Unlock()
+// This enforces correct Lock()-Usage()-Unlock() ordering.
+type Handle struct {
+	loader *Cache
+	chunk  *chunk
+}
+
+// GetReadOnly returns an *ofp.OfpGroupEntry which MUST NOT be modified externally, but which is safe to keep indefinitely
+func (h *Handle) GetReadOnly() *ofp.OfpGroupEntry {
+	return h.chunk.group
+}
+
+// Update updates an existing group in cache.
+// The provided "group" must not be modified afterwards.
+func (h *Handle) Update(ctx context.Context, group *ofp.OfpGroupEntry) error {
+	h.chunk.group = group
+	return nil
+}
+
+// Delete removes the group from the cache
+func (h *Handle) Delete(ctx context.Context) error {
+	h.chunk.deleted = true
+
+	h.loader.lock.Lock()
+	delete(h.loader.groups, h.chunk.group.Desc.GroupId)
+	h.loader.lock.Unlock()
+
+	h.Unlock()
+	return nil
+}
+
+// Unlock releases the lock on the group
+func (h *Handle) Unlock() {
+	if h.chunk != nil {
+		h.chunk.lock.Unlock()
+		h.chunk = nil // attempting to access the group through this handle in future will panic
+	}
+}
+
+// ListIDs returns a snapshot of all the managed group IDs
+// TODO: iterating through groups safely is expensive now, since all groups are stored & locked separately
+//       should avoid this where possible
+func (cache *Cache) ListIDs() map[uint32]struct{} {
+	cache.lock.RLock()
+	defer cache.lock.RUnlock()
+	// copy the IDs so caller can safely iterate
+	ret := make(map[uint32]struct{}, len(cache.groups))
+	for id := range cache.groups {
+		ret[id] = struct{}{}
+	}
+	return ret
+}
diff --git a/rw_core/core/device/group/common.go b/rw_core/core/device/group/common.go
deleted file mode 100644
index d56cb28..0000000
--- a/rw_core/core/device/group/common.go
+++ /dev/null
@@ -1,33 +0,0 @@
-/*
- * Copyright 2020-present Open Networking Foundation
- *
- * Licensed under the Apache License, Version 2.0 (the "License");
- * you may not use this file except in compliance with the License.
- * You may obtain a copy of the License at
- *
- * http://www.apache.org/licenses/LICENSE-2.0
- *
- * Unless required by applicable law or agreed to in writing, software
- * distributed under the License is distributed on an "AS IS" BASIS,
- * WITHOUT WARRANTIES OR CONDITIONS OF ANY KIND, either express or implied.
- * See the License for the specific language governing permissions and
- * limitations under the License.
- */
-
-// Package core Common Logger initialization
-package group
-
-import (
-	"github.com/opencord/voltha-lib-go/v4/pkg/log"
-)
-
-var logger log.CLogger
-
-func init() {
-	// Setup this package so that it's log level can be modified at run time
-	var err error
-	logger, err = log.RegisterPackage(log.JSON, log.ErrorLevel, log.Fields{})
-	if err != nil {
-		panic(err)
-	}
-}
diff --git a/rw_core/core/device/group/loader.go b/rw_core/core/device/group/loader.go
deleted file mode 100644
index 973663f..0000000
--- a/rw_core/core/device/group/loader.go
+++ /dev/null
@@ -1,187 +0,0 @@
-/*
- * Copyright 2018-present Open Networking Foundation
-
- * Licensed under the Apache License, Version 2.0 (the "License");
- * you may not use this file except in compliance with the License.
- * You may obtain a copy of the License at
-
- * http://www.apache.org/licenses/LICENSE-2.0
-
- * Unless required by applicable law or agreed to in writing, software
- * distributed under the License is distributed on an "AS IS" BASIS,
- * WITHOUT WARRANTIES OR CONDITIONS OF ANY KIND, either express or implied.
- * See the License for the specific language governing permissions and
- * limitations under the License.
- */
-
-package group
-
-import (
-	"context"
-	"fmt"
-	"sync"
-
-	"github.com/opencord/voltha-go/db/model"
-	"github.com/opencord/voltha-lib-go/v4/pkg/log"
-	ofp "github.com/opencord/voltha-protos/v4/go/openflow_13"
-	"google.golang.org/grpc/codes"
-	"google.golang.org/grpc/status"
-)
-
-// Loader hides all low-level locking & synchronization related to group state updates
-type Loader struct {
-	dbProxy *model.Proxy
-	// this lock protects the groups map, it does not protect individual groups
-	lock   sync.RWMutex
-	groups map[uint32]*chunk
-}
-
-// chunk keeps a group and the lock for this group
-type chunk struct {
-	// this lock is used to synchronize all access to the group, and also to the "deleted" variable
-	lock    sync.Mutex
-	deleted bool
-
-	group *ofp.OfpGroupEntry
-}
-
-func NewLoader(dbProxy *model.Proxy) *Loader {
-	return &Loader{
-		dbProxy: dbProxy,
-		groups:  make(map[uint32]*chunk),
-	}
-}
-
-// Load queries existing groups from the kv,
-// and should only be called once when first created.
-func (loader *Loader) Load(ctx context.Context) {
-	loader.lock.Lock()
-	defer loader.lock.Unlock()
-
-	var groups []*ofp.OfpGroupEntry
-	if err := loader.dbProxy.List(ctx, &groups); err != nil {
-		logger.Errorw(ctx, "failed-to-list-groups-from-cluster-data-proxy", log.Fields{"error": err})
-		return
-	}
-	for _, group := range groups {
-		loader.groups[group.Desc.GroupId] = &chunk{group: group}
-	}
-}
-
-// LockOrCreate locks this group if it exists, or creates a new group if it does not.
-// In the case of group creation, the provided "group" must not be modified afterwards.
-func (loader *Loader) LockOrCreate(ctx context.Context, group *ofp.OfpGroupEntry) (*Handle, bool, error) {
-	// try to use read lock instead of full lock if possible
-	if handle, have := loader.Lock(group.Desc.GroupId); have {
-		return handle, false, nil
-	}
-
-	loader.lock.Lock()
-	entry, have := loader.groups[group.Desc.GroupId]
-	if !have {
-		entry := &chunk{group: group}
-		loader.groups[group.Desc.GroupId] = entry
-		entry.lock.Lock()
-		loader.lock.Unlock()
-
-		if err := loader.dbProxy.Set(ctx, fmt.Sprint(group.Desc.GroupId), group); err != nil {
-			// revert the map
-			loader.lock.Lock()
-			delete(loader.groups, group.Desc.GroupId)
-			loader.lock.Unlock()
-
-			entry.deleted = true
-			entry.lock.Unlock()
-			return nil, false, err
-		}
-		return &Handle{loader: loader, chunk: entry}, true, nil
-	}
-	loader.lock.Unlock()
-
-	entry.lock.Lock()
-	if entry.deleted {
-		entry.lock.Unlock()
-		return loader.LockOrCreate(ctx, group)
-	}
-	return &Handle{loader: loader, chunk: entry}, false, nil
-}
-
-// Lock acquires the lock for this group, and returns a handle which can be used to access the group until it's unlocked.
-// This handle ensures that the group cannot be accessed if the lock is not held.
-// Returns false if the group is not present.
-// TODO: consider accepting a ctx and aborting the lock attempt on cancellation
-func (loader *Loader) Lock(id uint32) (*Handle, bool) {
-	loader.lock.RLock()
-	entry, have := loader.groups[id]
-	loader.lock.RUnlock()
-
-	if !have {
-		return nil, false
-	}
-
-	entry.lock.Lock()
-	if entry.deleted {
-		entry.lock.Unlock()
-		return loader.Lock(id)
-	}
-	return &Handle{loader: loader, chunk: entry}, true
-}
-
-// Handle is allocated for each Lock() call, all modifications are made using it, and it is invalidated by Unlock()
-// This enforces correct Lock()-Usage()-Unlock() ordering.
-type Handle struct {
-	loader *Loader
-	chunk  *chunk
-}
-
-// GetReadOnly returns an *ofp.OfpGroupEntry which MUST NOT be modified externally, but which is safe to keep indefinitely
-func (h *Handle) GetReadOnly() *ofp.OfpGroupEntry {
-	return h.chunk.group
-}
-
-// Update updates an existing group in the kv.
-// The provided "group" must not be modified afterwards.
-func (h *Handle) Update(ctx context.Context, group *ofp.OfpGroupEntry) error {
-	if err := h.loader.dbProxy.Set(ctx, fmt.Sprint(group.Desc.GroupId), group); err != nil {
-		return status.Errorf(codes.Internal, "failed-update-group-%v: %s", group.Desc.GroupId, err)
-	}
-	h.chunk.group = group
-	return nil
-}
-
-// Delete removes the device from the kv
-func (h *Handle) Delete(ctx context.Context) error {
-	if err := h.loader.dbProxy.Remove(ctx, fmt.Sprint(h.chunk.group.Desc.GroupId)); err != nil {
-		return fmt.Errorf("couldnt-delete-group-from-store-%v", h.chunk.group.Desc.GroupId)
-	}
-	h.chunk.deleted = true
-
-	h.loader.lock.Lock()
-	delete(h.loader.groups, h.chunk.group.Desc.GroupId)
-	h.loader.lock.Unlock()
-
-	h.Unlock()
-	return nil
-}
-
-// Unlock releases the lock on the group
-func (h *Handle) Unlock() {
-	if h.chunk != nil {
-		h.chunk.lock.Unlock()
-		h.chunk = nil // attempting to access the group through this handle in future will panic
-	}
-}
-
-// ListIDs returns a snapshot of all the managed group IDs
-// TODO: iterating through groups safely is expensive now, since all groups are stored & locked separately
-//       should avoid this where possible
-func (loader *Loader) ListIDs() map[uint32]struct{} {
-	loader.lock.RLock()
-	defer loader.lock.RUnlock()
-	// copy the IDs so caller can safely iterate
-	ret := make(map[uint32]struct{}, len(loader.groups))
-	for id := range loader.groups {
-		ret[id] = struct{}{}
-	}
-	return ret
-}
diff --git a/rw_core/core/device/logical_agent.go b/rw_core/core/device/logical_agent.go
index 917313e..a1579e8 100644
--- a/rw_core/core/device/logical_agent.go
+++ b/rw_core/core/device/logical_agent.go
@@ -58,10 +58,10 @@
 	startOnce       sync.Once
 	stopOnce        sync.Once
 
-	flowLoader  *flow.Loader
-	meterLoader *meter.Loader
-	groupLoader *group.Loader
-	portLoader  *port.Loader
+	flowCache  *flow.Cache
+	meterCache *meter.Cache
+	groupCache *group.Cache
+	portLoader *port.Loader
 }
 
 func newLogicalAgent(ctx context.Context, id string, sn string, deviceID string, ldeviceMgr *LogicalManager,
@@ -78,21 +78,21 @@
 		defaultTimeout:  defaultTimeout,
 		requestQueue:    coreutils.NewRequestQueue(),
 
-		flowLoader:  flow.NewLoader(dbProxy.SubPath("logical_flows").Proxy(id)),
-		groupLoader: group.NewLoader(dbProxy.SubPath("logical_groups").Proxy(id)),
-		meterLoader: meter.NewLoader(dbProxy.SubPath("logical_meters").Proxy(id)),
-		portLoader:  port.NewLoader(dbProxy.SubPath("logical_ports").Proxy(id)),
+		flowCache:  flow.NewCache(),
+		groupCache: group.NewCache(),
+		meterCache: meter.NewCache(),
+		portLoader: port.NewLoader(dbProxy.SubPath("logical_ports").Proxy(id)),
 	}
 }
 
 // start creates the logical device and add it to the data model
-func (agent *LogicalAgent) start(ctx context.Context, loadFromDB bool) error {
+func (agent *LogicalAgent) start(ctx context.Context, logicalDeviceExist bool, logicalDevice *voltha.LogicalDevice) error {
 	needToStart := false
 	if agent.startOnce.Do(func() { needToStart = true }); !needToStart {
 		return nil
 	}
 
-	logger.Infow(ctx, "starting-logical-device-agent", log.Fields{"logical-device-id": agent.logicalDeviceID, "load-from-db": loadFromDB})
+	logger.Infow(ctx, "starting-logical-device-agent", log.Fields{"logical-device-id": agent.logicalDeviceID, "load-from-db": logicalDeviceExist})
 
 	var startSucceeded bool
 	defer func() {
@@ -104,7 +104,7 @@
 	}()
 
 	var ld *voltha.LogicalDevice
-	if !loadFromDB {
+	if !logicalDeviceExist {
 		//Build the logical device based on information retrieved from the device adapter
 		var switchCap *ic.SwitchCapability
 		var err error
@@ -141,14 +141,17 @@
 			}
 		}()
 	} else {
-		//	load from dB - the logical may not exist at this time.  On error, just return and the calling function
-		// will destroy this agent.
-		ld := &voltha.LogicalDevice{}
-		have, err := agent.ldProxy.Get(ctx, agent.logicalDeviceID, ld)
-		if err != nil {
-			return err
-		} else if !have {
-			return status.Errorf(codes.NotFound, "logical_device-%s", agent.logicalDeviceID)
+		// Check to see if we need to load from dB
+		ld = logicalDevice
+		if logicalDevice == nil {
+			//	load from dB
+			ld = &voltha.LogicalDevice{}
+			have, err := agent.ldProxy.Get(ctx, agent.logicalDeviceID, ld)
+			if err != nil {
+				return err
+			} else if !have {
+				return status.Errorf(codes.NotFound, "logical_device-%s", agent.logicalDeviceID)
+			}
 		}
 
 		// Update the root device Id
@@ -160,15 +163,12 @@
 		// now that the root device is known, create DeviceRoutes with it
 		agent.deviceRoutes = route.NewDeviceRoutes(agent.logicalDeviceID, agent.rootDeviceID, agent.deviceMgr.listDevicePorts)
 
-		// load the flows, meters and groups from KV to cache
-		agent.flowLoader.Load(ctx)
-		agent.meterLoader.Load(ctx)
-		agent.groupLoader.Load(ctx)
+		// load the logical ports from KV to cache
 		agent.portLoader.Load(ctx)
 	}
 
 	// Setup the device routes. Building routes may fail if the pre-conditions are not satisfied (e.g. no PON ports present)
-	if loadFromDB {
+	if logicalDeviceExist {
 		go func() {
 			subCtx := coreutils.WithSpanAndRPCMetadataFromContext(ctx)
 			if err := agent.buildRoutes(subCtx); err != nil {
diff --git a/rw_core/core/device/logical_agent_flow.go b/rw_core/core/device/logical_agent_flow.go
index 46d4ffb..808dfd3 100644
--- a/rw_core/core/device/logical_agent_flow.go
+++ b/rw_core/core/device/logical_agent_flow.go
@@ -36,10 +36,10 @@
 
 // listLogicalDeviceFlows returns logical device flows
 func (agent *LogicalAgent) listLogicalDeviceFlows() map[uint64]*ofp.OfpFlowStats {
-	flowIDs := agent.flowLoader.ListIDs()
+	flowIDs := agent.flowCache.ListIDs()
 	flows := make(map[uint64]*ofp.OfpFlowStats, len(flowIDs))
 	for flowID := range flowIDs {
-		if flowHandle, have := agent.flowLoader.Lock(flowID); have {
+		if flowHandle, have := agent.flowCache.Lock(flowID); have {
 			flows[flowID] = flowHandle.GetReadOnly()
 			flowHandle.Unlock()
 		}
@@ -104,7 +104,7 @@
 	var flowToReplace *ofp.OfpFlowStats
 
 	//if flow is not found in the map, create a new entry, otherwise get the existing one.
-	flowHandle, created, err := agent.flowLoader.LockOrCreate(ctx, flow)
+	flowHandle, created, err := agent.flowCache.LockOrCreate(ctx, flow)
 	if err != nil {
 		return changed, updated, err
 	}
@@ -146,10 +146,10 @@
 			return changed, updated, err
 		}
 
-		groupIDs := agent.groupLoader.ListIDs()
+		groupIDs := agent.groupCache.ListIDs()
 		groups := make(map[uint32]*ofp.OfpGroupEntry, len(groupIDs))
 		for groupID := range groupIDs {
-			if groupHandle, have := agent.groupLoader.Lock(groupID); have {
+			if groupHandle, have := agent.groupCache.Lock(groupID); have {
 				groups[groupID] = groupHandle.GetReadOnly()
 				groupHandle.Unlock()
 			}
@@ -214,7 +214,7 @@
 func (agent *LogicalAgent) revertAddedFlows(ctx context.Context, mod *ofp.OfpFlowMod, addedFlow *ofp.OfpFlowStats, replacedFlow *ofp.OfpFlowStats, deviceRules *fu.DeviceRules, metadata *voltha.FlowMetadata) error {
 	logger.Debugw(ctx, "revert-flow-add", log.Fields{"added-flow": addedFlow, "replaced-flow": replacedFlow, "device-rules": deviceRules, "metadata": metadata})
 
-	flowHandle, have := agent.flowLoader.Lock(addedFlow.Id)
+	flowHandle, have := agent.flowCache.Lock(addedFlow.Id)
 	if !have {
 		// Not found - do nothing
 		logger.Debugw(ctx, "flow-not-found", log.Fields{"added-flow": addedFlow})
@@ -271,14 +271,14 @@
 	if err != nil {
 		return err
 	}
-	if handle, have := agent.flowLoader.Lock(fs.Id); have {
+	if handle, have := agent.flowCache.Lock(fs.Id); have {
 		toDelete[fs.Id] = handle.GetReadOnly()
 		handle.Unlock()
 	}
 
 	// search through all the flows
-	for flowID := range agent.flowLoader.ListIDs() {
-		if flowHandle, have := agent.flowLoader.Lock(flowID); have {
+	for flowID := range agent.flowCache.ListIDs() {
+		if flowHandle, have := agent.flowCache.Lock(flowID); have {
 			if flow := flowHandle.GetReadOnly(); fu.FlowMatchesMod(flow, mod) {
 				toDelete[flow.Id] = flow
 			}
@@ -291,7 +291,7 @@
 		logger.Debugw(ctx, "flow-delete", log.Fields{"logical-device-id": agent.logicalDeviceID, "to-delete": len(toDelete)})
 
 		for _, flow := range toDelete {
-			if flowHandle, have := agent.flowLoader.Lock(flow.Id); have {
+			if flowHandle, have := agent.flowCache.Lock(flow.Id); have {
 				// TODO: Flow should only be updated if meter is updated, and meter should only be updated if flow is updated
 				//       currently an error while performing the second operation will leave an inconsistent state in kv.
 				//       This should be a single atomic operation down to the kv.
@@ -318,8 +318,8 @@
 		}
 
 		groups := make(map[uint32]*ofp.OfpGroupEntry)
-		for groupID := range agent.groupLoader.ListIDs() {
-			if groupHandle, have := agent.groupLoader.Lock(groupID); have {
+		for groupID := range agent.groupCache.ListIDs() {
+			if groupHandle, have := agent.groupCache.Lock(groupID); have {
 				groups[groupID] = groupHandle.GetReadOnly()
 				groupHandle.Unlock()
 			}
@@ -386,7 +386,7 @@
 		return err
 	}
 	logger.Debugw(ctx, "flow-id-in-flow-delete-strict", log.Fields{"flow-id": flow.Id})
-	flowHandle, have := agent.flowLoader.Lock(flow.Id)
+	flowHandle, have := agent.flowCache.Lock(flow.Id)
 	if !have {
 		logger.Debugw(ctx, "skipping-flow-delete-strict-request-no-flow-found", log.Fields{"flow-mod": mod})
 		return nil
@@ -394,8 +394,8 @@
 	defer flowHandle.Unlock()
 
 	groups := make(map[uint32]*ofp.OfpGroupEntry)
-	for groupID := range agent.groupLoader.ListIDs() {
-		if groupHandle, have := agent.groupLoader.Lock(groupID); have {
+	for groupID := range agent.groupCache.ListIDs() {
+		if groupHandle, have := agent.groupCache.Lock(groupID); have {
 			groups[groupID] = groupHandle.GetReadOnly()
 			groupHandle.Unlock()
 		}
@@ -487,8 +487,8 @@
 
 func (agent *LogicalAgent) deleteFlowsHavingMeter(ctx context.Context, meterID uint32) error {
 	logger.Infow(ctx, "delete-flows-matching-meter", log.Fields{"meter": meterID})
-	for flowID := range agent.flowLoader.ListIDs() {
-		if flowHandle, have := agent.flowLoader.Lock(flowID); have {
+	for flowID := range agent.flowCache.ListIDs() {
+		if flowHandle, have := agent.flowCache.Lock(flowID); have {
 			if flowMeterID := fu.GetMeterIdFromFlow(flowHandle.GetReadOnly()); flowMeterID != 0 && flowMeterID == meterID {
 				if err := flowHandle.Delete(ctx); err != nil {
 					//TODO: Think on carrying on and deleting the remaining flows, instead of returning.
@@ -506,8 +506,8 @@
 func (agent *LogicalAgent) deleteFlowsHavingGroup(ctx context.Context, groupID uint32) (map[uint64]*ofp.OfpFlowStats, error) {
 	logger.Infow(ctx, "delete-flows-matching-group", log.Fields{"group-id": groupID})
 	flowsRemoved := make(map[uint64]*ofp.OfpFlowStats)
-	for flowID := range agent.flowLoader.ListIDs() {
-		if flowHandle, have := agent.flowLoader.Lock(flowID); have {
+	for flowID := range agent.flowCache.ListIDs() {
+		if flowHandle, have := agent.flowCache.Lock(flowID); have {
 			if flow := flowHandle.GetReadOnly(); fu.FlowHasOutGroup(flow, groupID) {
 				if err := flowHandle.Delete(ctx); err != nil {
 					return nil, err
diff --git a/rw_core/core/device/logical_agent_group.go b/rw_core/core/device/logical_agent_group.go
index df324d5..780eec3 100644
--- a/rw_core/core/device/logical_agent_group.go
+++ b/rw_core/core/device/logical_agent_group.go
@@ -32,10 +32,10 @@
 
 // listLogicalDeviceGroups returns logical device flow groups
 func (agent *LogicalAgent) listLogicalDeviceGroups() map[uint32]*ofp.OfpGroupEntry {
-	groupIDs := agent.groupLoader.ListIDs()
+	groupIDs := agent.groupCache.ListIDs()
 	groups := make(map[uint32]*ofp.OfpGroupEntry, len(groupIDs))
 	for groupID := range groupIDs {
-		if groupHandle, have := agent.groupLoader.Lock(groupID); have {
+		if groupHandle, have := agent.groupCache.Lock(groupID); have {
 			groups[groupID] = groupHandle.GetReadOnly()
 			groupHandle.Unlock()
 		}
@@ -69,7 +69,7 @@
 
 	groupEntry := fu.GroupEntryFromGroupMod(groupMod)
 
-	groupHandle, created, err := agent.groupLoader.LockOrCreate(ctx, groupEntry)
+	groupHandle, created, err := agent.groupCache.LockOrCreate(ctx, groupEntry)
 	if err != nil {
 		return err
 	}
@@ -120,11 +120,11 @@
 
 	toDelete := map[uint32]struct{}{groupMod.GroupId: {}}
 	if groupMod.GroupId == uint32(ofp.OfpGroup_OFPG_ALL) {
-		toDelete = agent.groupLoader.ListIDs()
+		toDelete = agent.groupCache.ListIDs()
 	}
 
 	for groupID := range toDelete {
-		if groupHandle, have := agent.groupLoader.Lock(groupID); have {
+		if groupHandle, have := agent.groupCache.Lock(groupID); have {
 			affectedGroups[groupID] = groupHandle.GetReadOnly()
 			if err := groupHandle.Delete(ctx); err != nil {
 				return err
@@ -202,7 +202,7 @@
 
 	groupID := groupMod.GroupId
 
-	groupHandle, have := agent.groupLoader.Lock(groupID)
+	groupHandle, have := agent.groupCache.Lock(groupID)
 	if !have {
 		return fmt.Errorf("group-absent:%d", groupID)
 	}
diff --git a/rw_core/core/device/logical_agent_meter.go b/rw_core/core/device/logical_agent_meter.go
index f3a1c89..d67b2df 100644
--- a/rw_core/core/device/logical_agent_meter.go
+++ b/rw_core/core/device/logical_agent_meter.go
@@ -29,10 +29,10 @@
 
 // listLogicalDeviceMeters returns logical device meters
 func (agent *LogicalAgent) listLogicalDeviceMeters() map[uint32]*ofp.OfpMeterEntry {
-	meterIDs := agent.meterLoader.ListIDs()
+	meterIDs := agent.meterCache.ListIDs()
 	meters := make(map[uint32]*ofp.OfpMeterEntry, len(meterIDs))
 	for meterID := range meterIDs {
-		if meterHandle, have := agent.meterLoader.Lock(meterID); have {
+		if meterHandle, have := agent.meterCache.Lock(meterID); have {
 			meters[meterID] = meterHandle.GetReadOnly()
 			meterHandle.Unlock()
 		}
@@ -67,7 +67,7 @@
 
 	meterEntry := fu.MeterEntryFromMeterMod(ctx, meterMod)
 
-	meterHandle, created, err := agent.meterLoader.LockOrCreate(ctx, meterEntry)
+	meterHandle, created, err := agent.meterCache.LockOrCreate(ctx, meterEntry)
 	if err != nil {
 		return err
 	}
@@ -88,7 +88,7 @@
 	}
 	logger.Debug(ctx, "meterDelete", log.Fields{"meterMod": *meterMod, "logical-device-id": agent.logicalDeviceID})
 
-	meterHandle, have := agent.meterLoader.Lock(meterMod.MeterId)
+	meterHandle, have := agent.meterCache.Lock(meterMod.MeterId)
 	if !have {
 		logger.Warnw(ctx, "meter-not-found", log.Fields{"meterID": meterMod.MeterId, "logical-device-id": agent.logicalDeviceID})
 		return nil
@@ -116,7 +116,7 @@
 		return nil
 	}
 
-	meterHandle, have := agent.meterLoader.Lock(meterMod.MeterId)
+	meterHandle, have := agent.meterCache.Lock(meterMod.MeterId)
 	if !have {
 		return fmt.Errorf("no-meter-to-modify: %d, logical-device-id: %s", meterMod.MeterId, agent.logicalDeviceID)
 	}
diff --git a/rw_core/core/device/logical_agent_meter_helpers.go b/rw_core/core/device/logical_agent_meter_helpers.go
index 8bffba9..654392e 100644
--- a/rw_core/core/device/logical_agent_meter_helpers.go
+++ b/rw_core/core/device/logical_agent_meter_helpers.go
@@ -32,7 +32,7 @@
 		if flowMeterID := fu.GetMeterIdFromFlow(flow); flowMeterID != 0 {
 			if _, have := metersConfig[flowMeterID]; !have {
 				// Meter is present in the flow, Get from logical device
-				meterHandle, have := agent.meterLoader.Lock(flowMeterID)
+				meterHandle, have := agent.meterCache.Lock(flowMeterID)
 				if !have {
 					logger.Errorw(ctx, "Meter-referred-by-flow-is-not-found-in-logicaldevice",
 						log.Fields{"meterID": flowMeterID, "Available-meters": metersConfig, "flow": *flow})
@@ -65,7 +65,7 @@
 		return true
 	}
 
-	meterHandle, have := agent.meterLoader.Lock(meterID)
+	meterHandle, have := agent.meterCache.Lock(meterID)
 	if !have {
 		logger.Debugw(ctx, "Meter-is-not-present-in-logical-device", log.Fields{"meterID": meterID})
 		return true
diff --git a/rw_core/core/device/logical_agent_port.go b/rw_core/core/device/logical_agent_port.go
index c82ada0..8a6e726 100644
--- a/rw_core/core/device/logical_agent_port.go
+++ b/rw_core/core/device/logical_agent_port.go
@@ -32,8 +32,8 @@
 
 // listLogicalDevicePorts returns logical device ports
 func (agent *LogicalAgent) listLogicalDevicePorts(ctx context.Context) map[uint32]*voltha.LogicalPort {
-	logger.Debug(ctx, "list-logical-device-ports")
 	portIDs := agent.portLoader.ListIDs()
+	logger.Debugw(ctx, "list-logical-device-ports", log.Fields{"num-ports": len(portIDs)})
 	ret := make(map[uint32]*voltha.LogicalPort, len(portIDs))
 	for portID := range portIDs {
 		if portHandle, have := agent.portLoader.Lock(portID); have {
diff --git a/rw_core/core/device/logical_agent_test.go b/rw_core/core/device/logical_agent_test.go
index 94f336c..011cacb 100644
--- a/rw_core/core/device/logical_agent_test.go
+++ b/rw_core/core/device/logical_agent_test.go
@@ -264,7 +264,7 @@
 	localWG.Wait()
 	meterEntry := fu.MeterEntryFromMeterMod(ctx, meterMod)
 
-	meterHandle, have := ldAgent.meterLoader.Lock(meterMod.MeterId)
+	meterHandle, have := ldAgent.meterCache.Lock(meterMod.MeterId)
 	assert.Equal(t, have, true)
 	if have {
 		assert.True(t, proto.Equal(meterEntry, meterHandle.GetReadOnly()))
diff --git a/rw_core/core/device/logical_manager.go b/rw_core/core/device/logical_manager.go
index 360d83b..9a38d9c 100644
--- a/rw_core/core/device/logical_manager.go
+++ b/rw_core/core/device/logical_manager.go
@@ -19,6 +19,7 @@
 import (
 	"context"
 	"errors"
+	"github.com/opencord/voltha-lib-go/v4/pkg/probe"
 	"io"
 	"strconv"
 	"strings"
@@ -50,6 +51,29 @@
 	logicalDeviceLoadingInProgress map[string][]chan int
 }
 
+func (ldMgr *LogicalManager) Start(ctx context.Context) {
+	logger.Info(ctx, "starting-logical-device-manager")
+	probe.UpdateStatusFromContext(ctx, "logical-device-manager", probe.ServiceStatusPreparing)
+
+	// Load all the logical devices from the dB
+	var logicalDevices []*voltha.LogicalDevice
+	if err := ldMgr.ldProxy.List(ctx, &logicalDevices); err != nil {
+		logger.Fatalw(ctx, "failed-to-list-logical-devices-from-cluster-proxy", log.Fields{"error": err})
+	}
+	for _, lDevice := range logicalDevices {
+		// Create an agent for each device
+		agent := newLogicalAgent(ctx, lDevice.Id, "", "", ldMgr, ldMgr.deviceMgr, ldMgr.dbPath, ldMgr.ldProxy, ldMgr.defaultTimeout)
+		if err := agent.start(ctx, true, lDevice); err != nil {
+			logger.Warnw(ctx, "failure-starting-logical-agent", log.Fields{"logical-device-id": lDevice.Id})
+		} else {
+			ldMgr.logicalDeviceAgents.Store(agent.logicalDeviceID, agent)
+		}
+	}
+
+	probe.UpdateStatusFromContext(ctx, "logical-device-manager", probe.ServiceStatusRunning)
+	logger.Info(ctx, "logical-device-manager-started")
+}
+
 func (ldMgr *LogicalManager) addLogicalDeviceAgentToMap(agent *LogicalAgent) {
 	if _, exist := ldMgr.logicalDeviceAgents.Load(agent.logicalDeviceID); !exist {
 		ldMgr.logicalDeviceAgents.Store(agent.logicalDeviceID, agent)
@@ -110,6 +134,8 @@
 		}
 		return true
 	})
+	logger.Debugw(ctx, "list-all-logical-devices", log.Fields{"num-logical-devices": len(logicalDevices)})
+
 	return &voltha.LogicalDevices{Items: logicalDevices}, nil
 }
 
@@ -146,7 +172,7 @@
 		//TODO: either wait for the agent to be started before returning, or
 		//      implement locks in the agent to ensure request are not processed before start() is complete
 		ldCtx := utils.WithSpanAndRPCMetadataFromContext(ctx)
-		err := agent.start(ldCtx, false)
+		err := agent.start(ldCtx, false, nil)
 		if err != nil {
 			logger.Errorw(ctx, "unable-to-create-the-logical-device", log.Fields{"error": err})
 			ldMgr.deleteLogicalDeviceAgent(id)
@@ -207,7 +233,7 @@
 			if _, err := ldMgr.getLogicalDeviceFromModel(ctx, lDeviceID); err == nil {
 				logger.Debugw(ctx, "loading-logical-device", log.Fields{"lDeviceId": lDeviceID})
 				agent := newLogicalAgent(ctx, lDeviceID, "", "", ldMgr, ldMgr.deviceMgr, ldMgr.dbPath, ldMgr.ldProxy, ldMgr.defaultTimeout)
-				if err := agent.start(ctx, true); err != nil {
+				if err := agent.start(ctx, true, nil); err != nil {
 					return err
 				}
 				ldMgr.logicalDeviceAgents.Store(agent.logicalDeviceID, agent)
@@ -301,6 +327,7 @@
 		ret[ctr] = flow
 		ctr++
 	}
+	logger.Debugw(ctx, "list-logical-device-flows", log.Fields{"logical-device-id": id.Id, "num-flows": len(flows)})
 	return &openflow_13.Flows{Items: ret}, nil
 }
 
@@ -319,6 +346,7 @@
 		ret[ctr] = group
 		ctr++
 	}
+	logger.Debugw(ctx, "list-logical-device-flow-groups", log.Fields{"logical-device-id": id.Id, "num-groups": len(groups)})
 	return &openflow_13.FlowGroups{Items: ret}, nil
 }
 
@@ -337,6 +365,7 @@
 		ret[ctr] = port
 		ctr++
 	}
+	logger.Debugw(ctx, "list-logical-device-ports", log.Fields{"logical-device-id": id.Id, "num-ports": len(ports)})
 	return &voltha.LogicalPorts{Items: ret}, nil
 }
 
diff --git a/rw_core/core/device/manager.go b/rw_core/core/device/manager.go
index b3fa7b7..3533046 100755
--- a/rw_core/core/device/manager.go
+++ b/rw_core/core/device/manager.go
@@ -20,6 +20,7 @@
 	"context"
 	"errors"
 	"github.com/opencord/voltha-go/rw_core/config"
+	"github.com/opencord/voltha-lib-go/v4/pkg/probe"
 	"sync"
 	"time"
 
@@ -95,6 +96,33 @@
 	return deviceMgr, logicalDeviceMgr
 }
 
+func (dMgr *Manager) Start(ctx context.Context) {
+	logger.Info(ctx, "starting-device-manager")
+	probe.UpdateStatusFromContext(ctx, "device-manager", probe.ServiceStatusPreparing)
+
+	// Load all the devices from the dB
+	var devices []*voltha.Device
+	if err := dMgr.dProxy.List(ctx, &devices); err != nil {
+		// Any error from the dB means if we proceed we may end up with corrupted data
+		logger.Fatalw(ctx, "failed-to-list-devices-from-KV", log.Fields{"error": err})
+	}
+
+	for _, device := range devices {
+		// Create an agent for each device
+		agent := newAgent(dMgr.adapterProxy, device, dMgr, dMgr.dbPath, dMgr.dProxy, dMgr.defaultTimeout)
+		if _, err := agent.start(ctx, true, device); err != nil {
+			logger.Warnw(ctx, "failure-starting-agent", log.Fields{"device-id": device.Id})
+		} else {
+			dMgr.addDeviceAgentToMap(agent)
+		}
+	}
+
+	// TODO: Need to trigger a reconcile at this point
+
+	probe.UpdateStatusFromContext(ctx, "device-manager", probe.ServiceStatusRunning)
+	logger.Info(ctx, "device-manager-started")
+}
+
 func (dMgr *Manager) addDeviceAgentToMap(agent *Agent) {
 	if _, exist := dMgr.deviceAgents.Load(agent.deviceID); !exist {
 		dMgr.deviceAgents.Store(agent.deviceID, agent)
@@ -168,7 +196,7 @@
 	device.Root = true
 	// Create and start a device agent for that device
 	agent := newAgent(dMgr.adapterProxy, device, dMgr, dMgr.dbPath, dMgr.dProxy, dMgr.defaultTimeout)
-	device, err = agent.start(ctx, device)
+	device, err = agent.start(ctx, false, device)
 	if err != nil {
 		logger.Errorw(ctx, "fail-to-start-device", log.Fields{"device-id": agent.deviceID, "error": err})
 		return nil, err
@@ -520,7 +548,7 @@
 			if device, err = dMgr.getDeviceFromModel(ctx, deviceID); err == nil {
 				logger.Debugw(ctx, "loading-device", log.Fields{"device-id": deviceID})
 				agent := newAgent(dMgr.adapterProxy, device, dMgr, dMgr.dbPath, dMgr.dProxy, dMgr.defaultTimeout)
-				if _, err = agent.start(ctx, nil); err != nil {
+				if _, err = agent.start(ctx, true, device); err != nil {
 					logger.Warnw(ctx, "failure-loading-device", log.Fields{"device-id": deviceID, "error": err})
 				} else {
 					dMgr.addDeviceAgentToMap(agent)
@@ -1041,7 +1069,7 @@
 
 	// Create and start a device agent for that device
 	agent := newAgent(dMgr.adapterProxy, childDevice, dMgr, dMgr.dbPath, dMgr.dProxy, dMgr.defaultTimeout)
-	insertedChildDevice, err := agent.start(ctx, childDevice)
+	insertedChildDevice, err := agent.start(ctx, false, childDevice)
 	if err != nil {
 		logger.Errorw(ctx, "error-starting-child-device", log.Fields{"parent-device-id": childDevice.ParentId, "child-device-id": agent.deviceID, "error": err})
 		return nil, err
diff --git a/rw_core/core/device/meter/cache.go b/rw_core/core/device/meter/cache.go
new file mode 100644
index 0000000..8912bbe
--- /dev/null
+++ b/rw_core/core/device/meter/cache.go
@@ -0,0 +1,148 @@
+/*
+ * Copyright 2018-present Open Networking Foundation
+
+ * Licensed under the Apache License, Version 2.0 (the "License");
+ * you may not use this file except in compliance with the License.
+ * You may obtain a copy of the License at
+
+ * http://www.apache.org/licenses/LICENSE-2.0
+
+ * Unless required by applicable law or agreed to in writing, software
+ * distributed under the License is distributed on an "AS IS" BASIS,
+ * WITHOUT WARRANTIES OR CONDITIONS OF ANY KIND, either express or implied.
+ * See the License for the specific language governing permissions and
+ * limitations under the License.
+ */
+
+package meter
+
+import (
+	"context"
+	"sync"
+
+	ofp "github.com/opencord/voltha-protos/v4/go/openflow_13"
+)
+
+// Cache hides all low-level locking & synchronization related to meter state updates
+type Cache struct {
+	// this lock protects the meters map, it does not protect individual meters
+	lock   sync.RWMutex
+	meters map[uint32]*chunk
+}
+
+// chunk keeps a meter and the lock for this meter
+type chunk struct {
+	// this lock is used to synchronize all access to the meter, and also to the "deleted" variable
+	lock    sync.Mutex
+	deleted bool
+
+	meter *ofp.OfpMeterEntry
+}
+
+func NewCache() *Cache {
+	return &Cache{
+		meters: make(map[uint32]*chunk),
+	}
+}
+
+// LockOrCreate locks this meter if it exists, or creates a new meter if it does not.
+// In the case of meter creation, the provided "meter" must not be modified afterwards.
+func (cache *Cache) LockOrCreate(ctx context.Context, meter *ofp.OfpMeterEntry) (*Handle, bool, error) {
+	// try to use read lock instead of full lock if possible
+	if handle, have := cache.Lock(meter.Config.MeterId); have {
+		return handle, false, nil
+	}
+
+	cache.lock.Lock()
+	entry, have := cache.meters[meter.Config.MeterId]
+	if !have {
+		entry := &chunk{meter: meter}
+		cache.meters[meter.Config.MeterId] = entry
+		entry.lock.Lock()
+		cache.lock.Unlock()
+
+		return &Handle{loader: cache, chunk: entry}, true, nil
+	}
+	cache.lock.Unlock()
+
+	entry.lock.Lock()
+	if entry.deleted {
+		entry.lock.Unlock()
+		return cache.LockOrCreate(ctx, meter)
+	}
+	return &Handle{loader: cache, chunk: entry}, false, nil
+}
+
+// Lock acquires the lock for this meter, and returns a handle which can be used to access the meter until it's unlocked.
+// This handle ensures that the meter cannot be accessed if the lock is not held.
+// Returns false if the meter is not present.
+// TODO: consider accepting a ctx and aborting the lock attempt on cancellation
+func (cache *Cache) Lock(id uint32) (*Handle, bool) {
+	cache.lock.RLock()
+	entry, have := cache.meters[id]
+	cache.lock.RUnlock()
+
+	if !have {
+		return nil, false
+	}
+
+	entry.lock.Lock()
+	if entry.deleted {
+		entry.lock.Unlock()
+		return cache.Lock(id)
+	}
+	return &Handle{loader: cache, chunk: entry}, true
+}
+
+// Handle is allocated for each Lock() call, all modifications are made using it, and it is invalidated by Unlock()
+// This enforces correct Lock()-Usage()-Unlock() ordering.
+type Handle struct {
+	loader *Cache
+	chunk  *chunk
+}
+
+// GetReadOnly returns an *ofp.OfpMeterEntry which MUST NOT be modified externally, but which is safe to keep indefinitely
+func (h *Handle) GetReadOnly() *ofp.OfpMeterEntry {
+	return h.chunk.meter
+}
+
+// Update updates an existing meter in cache.
+// The provided "meter" must not be modified afterwards.
+func (h *Handle) Update(ctx context.Context, meter *ofp.OfpMeterEntry) error {
+	h.chunk.meter = meter
+	return nil
+}
+
+// Delete removes the meter from the cache
+func (h *Handle) Delete(ctx context.Context) error {
+	h.chunk.deleted = true
+
+	h.loader.lock.Lock()
+	delete(h.loader.meters, h.chunk.meter.Config.MeterId)
+	h.loader.lock.Unlock()
+
+	h.Unlock()
+	return nil
+}
+
+// Unlock releases the lock on the meter
+func (h *Handle) Unlock() {
+	if h.chunk != nil {
+		h.chunk.lock.Unlock()
+		h.chunk = nil // attempting to access the meter through this handle in future will panic
+	}
+}
+
+// ListIDs returns a snapshot of all the managed meter IDs
+// TODO: iterating through meters safely is expensive now, since all meters are stored & locked separately
+//       should avoid this where possible
+func (cache *Cache) ListIDs() map[uint32]struct{} {
+	cache.lock.RLock()
+	defer cache.lock.RUnlock()
+	// copy the IDs so caller can safely iterate
+	ret := make(map[uint32]struct{}, len(cache.meters))
+	for id := range cache.meters {
+		ret[id] = struct{}{}
+	}
+	return ret
+}
diff --git a/rw_core/core/device/meter/common.go b/rw_core/core/device/meter/common.go
deleted file mode 100644
index fc77caa..0000000
--- a/rw_core/core/device/meter/common.go
+++ /dev/null
@@ -1,33 +0,0 @@
-/*
- * Copyright 2020-present Open Networking Foundation
- *
- * Licensed under the Apache License, Version 2.0 (the "License");
- * you may not use this file except in compliance with the License.
- * You may obtain a copy of the License at
- *
- * http://www.apache.org/licenses/LICENSE-2.0
- *
- * Unless required by applicable law or agreed to in writing, software
- * distributed under the License is distributed on an "AS IS" BASIS,
- * WITHOUT WARRANTIES OR CONDITIONS OF ANY KIND, either express or implied.
- * See the License for the specific language governing permissions and
- * limitations under the License.
- */
-
-// Package core Common Logger initialization
-package meter
-
-import (
-	"github.com/opencord/voltha-lib-go/v4/pkg/log"
-)
-
-var logger log.CLogger
-
-func init() {
-	// Setup this package so that it's log level can be modified at run time
-	var err error
-	logger, err = log.RegisterPackage(log.JSON, log.ErrorLevel, log.Fields{})
-	if err != nil {
-		panic(err)
-	}
-}
diff --git a/rw_core/core/device/meter/loader.go b/rw_core/core/device/meter/loader.go
deleted file mode 100644
index 8f3046b..0000000
--- a/rw_core/core/device/meter/loader.go
+++ /dev/null
@@ -1,187 +0,0 @@
-/*
- * Copyright 2018-present Open Networking Foundation
-
- * Licensed under the Apache License, Version 2.0 (the "License");
- * you may not use this file except in compliance with the License.
- * You may obtain a copy of the License at
-
- * http://www.apache.org/licenses/LICENSE-2.0
-
- * Unless required by applicable law or agreed to in writing, software
- * distributed under the License is distributed on an "AS IS" BASIS,
- * WITHOUT WARRANTIES OR CONDITIONS OF ANY KIND, either express or implied.
- * See the License for the specific language governing permissions and
- * limitations under the License.
- */
-
-package meter
-
-import (
-	"context"
-	"fmt"
-	"sync"
-
-	"github.com/opencord/voltha-go/db/model"
-	"github.com/opencord/voltha-lib-go/v4/pkg/log"
-	ofp "github.com/opencord/voltha-protos/v4/go/openflow_13"
-	"google.golang.org/grpc/codes"
-	"google.golang.org/grpc/status"
-)
-
-// Loader hides all low-level locking & synchronization related to meter state updates
-type Loader struct {
-	dbProxy *model.Proxy
-	// this lock protects the meters map, it does not protect individual meters
-	lock   sync.RWMutex
-	meters map[uint32]*chunk
-}
-
-// chunk keeps a meter and the lock for this meter
-type chunk struct {
-	// this lock is used to synchronize all access to the meter, and also to the "deleted" variable
-	lock    sync.Mutex
-	deleted bool
-
-	meter *ofp.OfpMeterEntry
-}
-
-func NewLoader(dbProxy *model.Proxy) *Loader {
-	return &Loader{
-		dbProxy: dbProxy,
-		meters:  make(map[uint32]*chunk),
-	}
-}
-
-// Load queries existing meters from the kv,
-// and should only be called once when first created.
-func (loader *Loader) Load(ctx context.Context) {
-	loader.lock.Lock()
-	defer loader.lock.Unlock()
-
-	var meters []*ofp.OfpMeterEntry
-	if err := loader.dbProxy.List(ctx, &meters); err != nil {
-		logger.Errorw(ctx, "failed-to-list-meters-from-cluster-data-proxy", log.Fields{"error": err})
-		return
-	}
-	for _, meter := range meters {
-		loader.meters[meter.Config.MeterId] = &chunk{meter: meter}
-	}
-}
-
-// LockOrCreate locks this meter if it exists, or creates a new meter if it does not.
-// In the case of meter creation, the provided "meter" must not be modified afterwards.
-func (loader *Loader) LockOrCreate(ctx context.Context, meter *ofp.OfpMeterEntry) (*Handle, bool, error) {
-	// try to use read lock instead of full lock if possible
-	if handle, have := loader.Lock(meter.Config.MeterId); have {
-		return handle, false, nil
-	}
-
-	loader.lock.Lock()
-	entry, have := loader.meters[meter.Config.MeterId]
-	if !have {
-		entry := &chunk{meter: meter}
-		loader.meters[meter.Config.MeterId] = entry
-		entry.lock.Lock()
-		loader.lock.Unlock()
-
-		if err := loader.dbProxy.Set(ctx, fmt.Sprint(meter.Config.MeterId), meter); err != nil {
-			// revert the map
-			loader.lock.Lock()
-			delete(loader.meters, meter.Config.MeterId)
-			loader.lock.Unlock()
-
-			entry.deleted = true
-			entry.lock.Unlock()
-			return nil, false, err
-		}
-		return &Handle{loader: loader, chunk: entry}, true, nil
-	}
-	loader.lock.Unlock()
-
-	entry.lock.Lock()
-	if entry.deleted {
-		entry.lock.Unlock()
-		return loader.LockOrCreate(ctx, meter)
-	}
-	return &Handle{loader: loader, chunk: entry}, false, nil
-}
-
-// Lock acquires the lock for this meter, and returns a handle which can be used to access the meter until it's unlocked.
-// This handle ensures that the meter cannot be accessed if the lock is not held.
-// Returns false if the meter is not present.
-// TODO: consider accepting a ctx and aborting the lock attempt on cancellation
-func (loader *Loader) Lock(id uint32) (*Handle, bool) {
-	loader.lock.RLock()
-	entry, have := loader.meters[id]
-	loader.lock.RUnlock()
-
-	if !have {
-		return nil, false
-	}
-
-	entry.lock.Lock()
-	if entry.deleted {
-		entry.lock.Unlock()
-		return loader.Lock(id)
-	}
-	return &Handle{loader: loader, chunk: entry}, true
-}
-
-// Handle is allocated for each Lock() call, all modifications are made using it, and it is invalidated by Unlock()
-// This enforces correct Lock()-Usage()-Unlock() ordering.
-type Handle struct {
-	loader *Loader
-	chunk  *chunk
-}
-
-// GetReadOnly returns an *ofp.OfpMeterEntry which MUST NOT be modified externally, but which is safe to keep indefinitely
-func (h *Handle) GetReadOnly() *ofp.OfpMeterEntry {
-	return h.chunk.meter
-}
-
-// Update updates an existing meter in the kv.
-// The provided "meter" must not be modified afterwards.
-func (h *Handle) Update(ctx context.Context, meter *ofp.OfpMeterEntry) error {
-	if err := h.loader.dbProxy.Set(ctx, fmt.Sprint(meter.Config.MeterId), meter); err != nil {
-		return status.Errorf(codes.Internal, "failed-update-meter-%v: %s", meter.Config.MeterId, err)
-	}
-	h.chunk.meter = meter
-	return nil
-}
-
-// Delete removes the device from the kv
-func (h *Handle) Delete(ctx context.Context) error {
-	if err := h.loader.dbProxy.Remove(ctx, fmt.Sprint(h.chunk.meter.Config.MeterId)); err != nil {
-		return fmt.Errorf("couldnt-delete-meter-from-store-%v", h.chunk.meter.Config.MeterId)
-	}
-	h.chunk.deleted = true
-
-	h.loader.lock.Lock()
-	delete(h.loader.meters, h.chunk.meter.Config.MeterId)
-	h.loader.lock.Unlock()
-
-	h.Unlock()
-	return nil
-}
-
-// Unlock releases the lock on the meter
-func (h *Handle) Unlock() {
-	if h.chunk != nil {
-		h.chunk.lock.Unlock()
-		h.chunk = nil // attempting to access the meter through this handle in future will panic
-	}
-}
-
-// ListIDs returns a snapshot of all the managed meter IDs
-// TODO: iterating through meters safely is expensive now, since all meters are stored & locked separately
-//       should avoid this where possible
-func (loader *Loader) ListIDs() map[uint32]struct{} {
-	loader.lock.RLock()
-	defer loader.lock.RUnlock()
-	// copy the IDs so caller can safely iterate
-	ret := make(map[uint32]struct{}, len(loader.meters))
-	for id := range loader.meters {
-		ret[id] = struct{}{}
-	}
-	return ret
-}
diff --git a/rw_core/core/device/transientstate/loader.go b/rw_core/core/device/transientstate/loader.go
index f8710cc..411515f 100644
--- a/rw_core/core/device/transientstate/loader.go
+++ b/rw_core/core/device/transientstate/loader.go
@@ -58,11 +58,16 @@
 	defer loader.lock.Unlock()
 
 	var deviceTransientState voltha.DeviceTransientState
-	if have, err := loader.dbProxy.Get(ctx, loader.deviceTransientState.deviceID, &deviceTransientState); err != nil || !have {
+	have, err := loader.dbProxy.Get(ctx, loader.deviceTransientState.deviceID, &deviceTransientState)
+	if err != nil {
 		logger.Errorw(ctx, "failed-to-get-device-transient-state-from-cluster-data-proxy", log.Fields{"error": err})
 		return
 	}
-	loader.deviceTransientState.transientState = deviceTransientState.TransientState
+	if have {
+		loader.deviceTransientState.transientState = deviceTransientState.TransientState
+		return
+	}
+	loader.deviceTransientState.transientState = voltha.DeviceTransientState_NONE
 }
 
 // Lock acquires the lock for deviceTransientStateLoader, and returns a handle