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WS-971: Set up the notification service so it is accessible to the action

Daniel Lyons requested to merge WS-971-decide-whether-to-email-in-sendnotification into main

Also, prepare the action to make a decision about whether to send by the presence of the user's email address.

I'm putting the notifier in the capability service so that I'll have access to the transaction when we do the next part. The capability service has access to the active transaction, but the action won't, so the action has to go through something else that has it.

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