I think a government is capable of trolling. I think it's less likely for a government to troll than an individual Internet user, in the traditional "trolling" sense.

Trolling isn't just "pissing off other users", it's "pissing off other users for the lulz". That's a very dumbed-down definition of trolling, too. I think it's unlikely that a government would piss anybody off just for the sake of it. I suspect they'd have motives to do with economic or social goals on some national or international level.

However, that doesn't mean that this alleged power can't and won't be abused in the way that a troll might abuse the flag power.