NOTE: This is a dependency of OCPSTRAT-1188 which tracks migration from ostree native containers to bootc.

Feature Overview (aka. Goal Summary)  

Locally layered package install is not overtly supported and isn't recommended for delivering content at scale, but is used in the field in some scenarios and quite likely by third-party integrations. It's also currently how CoreOS extensions work.

We should preserve this ability.

Requirements (aka. Acceptance Criteria):

The ability to install RPM packages locally with and without persistence through reboot and upgrade.

Documentation Considerations

Documentation should be guiding customers to using CoreOS layering for custom content generally. 

Interoperability Considerations

This should be done in step with RHEL/dnf plans.