Issuing a pool restart does not work if there is no consensus

The Sovrin Test Net hit a problem where 10 of 18 nodes were attempting a view change.

We attempted to restore consensus by putting a restart transaction on the ledger. The transaction was not executed. Instead we had to restart each node manually.

Instructions for a restart command are here:
https://github.com/hyperledger/indy-node/blob/5d4088f70f69113e6f1ae31373e3d201b8273fe9/design/pool_restart_txn.md