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if I recall correctly the default action mapping (nbactions.xml) file mapping was used if none was found in nbactions-foo.xml when foo configuration was active. Without this inheritance configurations are sort of useless as for each configuration one needs to repeat the same mappings all over again.
jglick: any idea if the change was intentional? do you recall working it the way I remember?
I do not recall making any changes in this area. I guess there was no unit test for this behavior?
well, I haven't found any code inidicating it ever worked. I suppose it was just my imagination at play. -> enhancement.