We should move all files from root to a base package. This would make it easier to handle optional files like rc.ftpd, rc.external, libmodmount and others.
My idea is shown in the attached patch. However I did not include the whole root/ tree under make/base/files/root/.
Perhaps there are better ways to achieve this conditional file handling?
I didn't pay attention to our newly added TARGET_SPECIFIC_ROOT_DIR with the libs in it. Perhaps we can put the libs into this dir too and exclude lib, usr/share/terminfo and usr/lib/freetz in the .exclude for package base.