* refactor eager flags

* fix flags error when we switch from eager to dygraph

* fix ci problem

* fix ci

* fix ci

* merge develop and fix code style

* merge develop and fix code style

* fix op test error

* fix op test error

* fix op test error

* fix op test error

* fix op test error

* merge develop

move distribution.py into distribution package and split into different file for better scalability (#38047)