diff --git a/agent/config/agent_limits_test.go b/agent/config/agent_limits_test.go
index ee87306b4..eb1b6fd34 100644
--- a/agent/config/agent_limits_test.go
+++ b/agent/config/agent_limits_test.go
@@ -14,7 +14,7 @@ func TestBuildAndValidate_HTTPMaxConnsPerClientExceedsRLimit(t *testing.T) {
 			# This value is more than max on Windows as well
 			http_max_conns_per_client = 16777217
 		}`
-	b, err := NewBuilder(Flags{})
+	b, err := NewBuilder(BuilderOpts{})
 	assert.NoError(t, err)
 	testsrc := Source{
 		Name:   "test",
diff --git a/agent/config/builder.go b/agent/config/builder.go
index 0185a6663..4fcdfce94 100644
--- a/agent/config/builder.go
+++ b/agent/config/builder.go
@@ -54,8 +54,8 @@ import (
 // since not all pre-conditions have to be satisfied when performing
 // syntactical tests.
 type Builder struct {
-	// Flags contains the parsed command line arguments.
-	Flags Flags
+	// options contains the input values used to construct a RuntimeConfig
+	options BuilderOpts
 
 	// Head, Sources, and Tail are used to manage the order of the
 	// config sources, as described in the comments above.
@@ -83,7 +83,7 @@ type Builder struct {
 
 // NewBuilder returns a new configuration builder based on the given command
 // line flags.
-func NewBuilder(flags Flags) (*Builder, error) {
+func NewBuilder(opts BuilderOpts) (*Builder, error) {
 	newSource := func(name string, v interface{}) Source {
 		b, err := json.MarshalIndent(v, "", "    ")
 		if err != nil {
@@ -93,11 +93,11 @@ func NewBuilder(flags Flags) (*Builder, error) {
 	}
 
 	b := &Builder{
-		Flags: flags,
-		Head:  []Source{DefaultSource(), DefaultEnterpriseSource()},
+		options: opts,
+		Head:    []Source{DefaultSource(), DefaultEnterpriseSource()},
 	}
 
-	if b.boolVal(b.Flags.DevMode) {
+	if b.boolVal(b.options.DevMode) {
 		b.Head = append(b.Head, DevSource())
 	}
 
@@ -106,9 +106,9 @@ func NewBuilder(flags Flags) (*Builder, error) {
 	// we need to merge all slice values defined in flags before we
 	// merge the config files since the flag values for slices are
 	// otherwise appended instead of prepended.
-	slices, values := b.splitSlicesAndValues(b.Flags.Config)
+	slices, values := b.splitSlicesAndValues(b.options.Config)
 	b.Head = append(b.Head, newSource("flags.slices", slices))
-	for _, path := range b.Flags.ConfigFiles {
+	for _, path := range b.options.ConfigFiles {
 		sources, err := b.ReadPath(path)
 		if err != nil {
 			return nil, err
@@ -116,7 +116,7 @@ func NewBuilder(flags Flags) (*Builder, error) {
 		b.Sources = append(b.Sources, sources...)
 	}
 	b.Tail = append(b.Tail, newSource("flags.values", values))
-	for i, s := range b.Flags.HCL {
+	for i, s := range b.options.HCL {
 		b.Tail = append(b.Tail, Source{
 			Name:   fmt.Sprintf("flags-%d.hcl", i),
 			Format: "hcl",
@@ -124,7 +124,7 @@ func NewBuilder(flags Flags) (*Builder, error) {
 		})
 	}
 	b.Tail = append(b.Tail, NonUserSource(), DefaultConsulSource(), OverrideEnterpriseSource(), DefaultVersionSource())
-	if b.boolVal(b.Flags.DevMode) {
+	if b.boolVal(b.options.DevMode) {
 		b.Tail = append(b.Tail, DevConsulSource())
 	}
 	return b, nil
@@ -204,7 +204,7 @@ func (b *Builder) ReadFile(path string) (Source, error) {
 
 // shouldParse file determines whether the file to be read is of a supported extension
 func (b *Builder) shouldParseFile(path string) bool {
-	configFormat := b.stringVal(b.Flags.ConfigFormat)
+	configFormat := b.stringVal(b.options.ConfigFormat)
 	srcFormat := FormatFrom(path)
 
 	// If config-format is not set, only read files with supported extensions
@@ -244,7 +244,7 @@ func (b *Builder) Build() (rt RuntimeConfig, err error) {
 	// ----------------------------------------------------------------
 	// merge config sources as follows
 	//
-	configFormat := b.stringVal(b.Flags.ConfigFormat)
+	configFormat := b.stringVal(b.options.ConfigFormat)
 	if configFormat != "" && configFormat != "json" && configFormat != "hcl" {
 		return RuntimeConfig{}, fmt.Errorf("config: -config-format must be either 'hcl' or 'json'")
 	}
@@ -910,7 +910,7 @@ func (b *Builder) Build() (rt RuntimeConfig, err error) {
 		DataDir:                                b.stringVal(c.DataDir),
 		Datacenter:                             datacenter,
 		DefaultQueryTime:                       b.durationVal("default_query_time", c.DefaultQueryTime),
-		DevMode:                                b.boolVal(b.Flags.DevMode),
+		DevMode:                                b.boolVal(b.options.DevMode),
 		DisableAnonymousSignature:              b.boolVal(c.DisableAnonymousSignature),
 		DisableCoordinates:                     b.boolVal(c.DisableCoordinates),
 		DisableHostNodeID:                      b.boolVal(c.DisableHostNodeID),
diff --git a/agent/config/default.go b/agent/config/default.go
index 531f0469d..6afc93ccb 100644
--- a/agent/config/default.go
+++ b/agent/config/default.go
@@ -264,7 +264,7 @@ func DevConsulSource() Source {
 }
 
 func DefaultRuntimeConfig(hcl string) *RuntimeConfig {
-	b, err := NewBuilder(Flags{HCL: []string{hcl}})
+	b, err := NewBuilder(BuilderOpts{HCL: []string{hcl}})
 	if err != nil {
 		panic(err)
 	}
diff --git a/agent/config/flags.go b/agent/config/flags.go
index 8d1fc8a01..3f1312182 100644
--- a/agent/config/flags.go
+++ b/agent/config/flags.go
@@ -6,8 +6,8 @@ import (
 	"time"
 )
 
-// Flags defines the command line flags.
-type Flags struct {
+// BuilderOpts used by Builder to construct and validate a RuntimeConfig.
+type BuilderOpts struct {
 	// Config contains the command line arguments that can also be set
 	// in a config file.
 	Config Config
@@ -29,7 +29,7 @@ type Flags struct {
 }
 
 // AddFlags adds the command line flags for the agent.
-func AddFlags(fs *flag.FlagSet, f *Flags) {
+func AddFlags(fs *flag.FlagSet, f *BuilderOpts) {
 	add := func(p interface{}, name, help string) {
 		switch x := p.(type) {
 		case **bool:
diff --git a/agent/config/flags_test.go b/agent/config/flags_test.go
index 91f097a5e..10edb2204 100644
--- a/agent/config/flags_test.go
+++ b/agent/config/flags_test.go
@@ -15,78 +15,78 @@ import (
 func TestAddFlags_WithParse(t *testing.T) {
 	tests := []struct {
 		args     []string
-		expected Flags
+		expected BuilderOpts
 		extra    []string
 	}{
 		{},
 		{
 			args:     []string{`-bind`, `a`},
-			expected: Flags{Config: Config{BindAddr: pString("a")}},
+			expected: BuilderOpts{Config: Config{BindAddr: pString("a")}},
 		},
 		{
 			args:     []string{`-bootstrap`},
-			expected: Flags{Config: Config{Bootstrap: pBool(true)}},
+			expected: BuilderOpts{Config: Config{Bootstrap: pBool(true)}},
 		},
 		{
 			args:     []string{`-bootstrap=true`},
-			expected: Flags{Config: Config{Bootstrap: pBool(true)}},
+			expected: BuilderOpts{Config: Config{Bootstrap: pBool(true)}},
 		},
 		{
 			args:     []string{`-bootstrap=false`},
-			expected: Flags{Config: Config{Bootstrap: pBool(false)}},
+			expected: BuilderOpts{Config: Config{Bootstrap: pBool(false)}},
 		},
 		{
 			args:     []string{`-config-file`, `a`, `-config-dir`, `b`, `-config-file`, `c`, `-config-dir`, `d`},
-			expected: Flags{ConfigFiles: []string{"a", "b", "c", "d"}},
+			expected: BuilderOpts{ConfigFiles: []string{"a", "b", "c", "d"}},
 		},
 		{
 			args:     []string{`-datacenter`, `a`},
-			expected: Flags{Config: Config{Datacenter: pString("a")}},
+			expected: BuilderOpts{Config: Config{Datacenter: pString("a")}},
 		},
 		{
 			args:     []string{`-dns-port`, `1`},
-			expected: Flags{Config: Config{Ports: Ports{DNS: pInt(1)}}},
+			expected: BuilderOpts{Config: Config{Ports: Ports{DNS: pInt(1)}}},
 		},
 		{
 			args:     []string{`-grpc-port`, `1`},
-			expected: Flags{Config: Config{Ports: Ports{GRPC: pInt(1)}}},
+			expected: BuilderOpts{Config: Config{Ports: Ports{GRPC: pInt(1)}}},
 		},
 		{
 			args:     []string{`-http-port`, `1`},
-			expected: Flags{Config: Config{Ports: Ports{HTTP: pInt(1)}}},
+			expected: BuilderOpts{Config: Config{Ports: Ports{HTTP: pInt(1)}}},
 		},
 		{
 			args:     []string{`-https-port`, `1`},
-			expected: Flags{Config: Config{Ports: Ports{HTTPS: pInt(1)}}},
+			expected: BuilderOpts{Config: Config{Ports: Ports{HTTPS: pInt(1)}}},
 		},
 		{
 			args:     []string{`-serf-lan-port`, `1`},
-			expected: Flags{Config: Config{Ports: Ports{SerfLAN: pInt(1)}}},
+			expected: BuilderOpts{Config: Config{Ports: Ports{SerfLAN: pInt(1)}}},
 		},
 		{
 			args:     []string{`-serf-wan-port`, `1`},
-			expected: Flags{Config: Config{Ports: Ports{SerfWAN: pInt(1)}}},
+			expected: BuilderOpts{Config: Config{Ports: Ports{SerfWAN: pInt(1)}}},
 		},
 		{
 			args:     []string{`-server-port`, `1`},
-			expected: Flags{Config: Config{Ports: Ports{Server: pInt(1)}}},
+			expected: BuilderOpts{Config: Config{Ports: Ports{Server: pInt(1)}}},
 		},
 		{
 			args:     []string{`-join`, `a`, `-join`, `b`},
-			expected: Flags{Config: Config{StartJoinAddrsLAN: []string{"a", "b"}}},
+			expected: BuilderOpts{Config: Config{StartJoinAddrsLAN: []string{"a", "b"}}},
 		},
 		{
 			args:     []string{`-node-meta`, `a:b`, `-node-meta`, `c:d`},
-			expected: Flags{Config: Config{NodeMeta: map[string]string{"a": "b", "c": "d"}}},
+			expected: BuilderOpts{Config: Config{NodeMeta: map[string]string{"a": "b", "c": "d"}}},
 		},
 		{
 			args:     []string{`-bootstrap`, `true`},
-			expected: Flags{Config: Config{Bootstrap: pBool(true)}},
+			expected: BuilderOpts{Config: Config{Bootstrap: pBool(true)}},
 			extra:    []string{"true"},
 		},
 		{
 			args: []string{`-primary-gateway`, `foo.local`, `-primary-gateway`, `bar.local`},
-			expected: Flags{Config: Config{PrimaryGateways: []string{
+			expected: BuilderOpts{Config: Config{PrimaryGateways: []string{
 				"foo.local", "bar.local",
 			}}},
 		},
@@ -94,7 +94,7 @@ func TestAddFlags_WithParse(t *testing.T) {
 
 	for _, tt := range tests {
 		t.Run(strings.Join(tt.args, " "), func(t *testing.T) {
-			flags := Flags{}
+			flags := BuilderOpts{}
 			fs := flag.NewFlagSet("", flag.ContinueOnError)
 			AddFlags(fs, &flags)
 
diff --git a/agent/config/runtime_test.go b/agent/config/runtime_test.go
index d8e137a59..913128086 100644
--- a/agent/config/runtime_test.go
+++ b/agent/config/runtime_test.go
@@ -3844,7 +3844,7 @@ func testConfig(t *testing.T, tests []configTest, dataDir string) {
 
 			t.Run(strings.Join(desc, ":"), func(t *testing.T) {
 				// first parse the flags
-				flags := Flags{}
+				flags := BuilderOpts{}
 				fs := flag.NewFlagSet("", flag.ContinueOnError)
 				AddFlags(fs, &flags)
 				err := fs.Parse(tt.args)
@@ -3930,7 +3930,7 @@ func testConfig(t *testing.T, tests []configTest, dataDir string) {
 				// build a default configuration, then patch the fields we expect to change
 				// and compare it with the generated configuration. Since the expected
 				// runtime config has been validated we do not need to validate it again.
-				x, err := NewBuilder(Flags{})
+				x, err := NewBuilder(BuilderOpts{})
 				if err != nil {
 					t.Fatal(err)
 				}
@@ -5996,7 +5996,7 @@ func TestFullConfig(t *testing.T) {
 		t.Run(format, func(t *testing.T) {
 			// parse the flags since this is the only way we can set the
 			// DevMode flag
-			var flags Flags
+			var flags BuilderOpts
 			fs := flag.NewFlagSet("", flag.ContinueOnError)
 			AddFlags(fs, &flags)
 			if err := fs.Parse(flagSrc); err != nil {
diff --git a/agent/testagent.go b/agent/testagent.go
index 776c38157..439dede68 100644
--- a/agent/testagent.go
+++ b/agent/testagent.go
@@ -436,7 +436,7 @@ func TestConfig(logger hclog.Logger, sources ...config.Source) *config.RuntimeCo
 		`,
 	}
 
-	b, err := config.NewBuilder(config.Flags{})
+	b, err := config.NewBuilder(config.BuilderOpts{})
 	if err != nil {
 		panic("NewBuilder failed: " + err.Error())
 	}
diff --git a/command/agent/agent.go b/command/agent/agent.go
index ee088dce8..8e50e37da 100644
--- a/command/agent/agent.go
+++ b/command/agent/agent.go
@@ -57,7 +57,7 @@ type cmd struct {
 	versionPrerelease string
 	versionHuman      string
 	shutdownCh        <-chan struct{}
-	flagArgs          config.Flags
+	flagArgs          config.BuilderOpts
 	logger            hclog.InterceptLogger
 }
 
diff --git a/command/services/config.go b/command/services/config.go
index ee2477d3c..94b026ff5 100644
--- a/command/services/config.go
+++ b/command/services/config.go
@@ -17,7 +17,7 @@ func ServicesFromFiles(files []string) ([]*api.AgentServiceRegistration, error)
 	// configuration. devMode doesn't set any services by default so this
 	// is okay since we only look at services.
 	devMode := true
-	b, err := config.NewBuilder(config.Flags{
+	b, err := config.NewBuilder(config.BuilderOpts{
 		ConfigFiles: files,
 		DevMode:     &devMode,
 	})
diff --git a/command/services/config_test.go b/command/services/config_test.go
index d6e93b3db..71cdd96e8 100644
--- a/command/services/config_test.go
+++ b/command/services/config_test.go
@@ -18,7 +18,7 @@ func TestDevModeHasNoServices(t *testing.T) {
 	require := require.New(t)
 
 	devMode := true
-	b, err := config.NewBuilder(config.Flags{
+	b, err := config.NewBuilder(config.BuilderOpts{
 		DevMode: &devMode,
 	})
 	require.NoError(err)
diff --git a/command/validate/validate.go b/command/validate/validate.go
index fe3e64653..f85fc6422 100644
--- a/command/validate/validate.go
+++ b/command/validate/validate.go
@@ -51,7 +51,7 @@ func (c *cmd) Run(args []string) int {
 		return 1
 	}
 
-	b, err := config.NewBuilder(config.Flags{ConfigFiles: configFiles, ConfigFormat: &c.configFormat})
+	b, err := config.NewBuilder(config.BuilderOpts{ConfigFiles: configFiles, ConfigFormat: &c.configFormat})
 	if err != nil {
 		c.UI.Error(fmt.Sprintf("Config validation failed: %v", err.Error()))
 		return 1