If baselineCapabilities: None is set on the clusterversion CR, during an upgrade from 4.13 to 4.14, the newly exposed capabilities won't be updated to 4.14

4.14.0-rc.6

Every time (note that this is an ARO cluster)

1. Install a 4.11 cluster with baselineCapabilities: None on the clusterversion CR
2. Upgrade to 4.12, 4.13, (stable channels) and 4.14 (candidate channel)
3. Watch the cluster operators after the upgrade finishes
 

- console
- cluster-autoscaler
- control-plane-machine-set
- csi-snapshot-controller
- image-registry
- insights
- machine-api
- node-tuning
- storage

^ above cluster operators aren't updated, they're still on 4.13.15 and clusterversion reports upgrade as finished.

Some of these are new capabilities in 4.14 as defined here (https://docs.openshift.com/container-platform/4.14/installing/cluster-capabilities.html#cluster-capabilities).  During an upgrade from 4.12 to 4.13, these cluster operators were updated as expected, but not during a 4.13 -> 4.14 upgrade. 

All cluster operators previously enabled based on implicit installation (i.e. no opt-out) will be upgraded

This is an ARO cluster.  We set baselineCapabilties: None to remove the baremetal capability.