The rate limiter returns an error and unblocks early if its burst limit is
exceeded (unless the burst limit is Inf). Ensure we're not unblocking early,
otherwise we'll only slow down the cases where we're already pausing to make
external RPC requests.

When keyring replication makes a stale query to non-leader peers to find a key
the leader doesn't have, we need to make sure the peer we're querying has had a
chance to catch up to the most current index for that key. Otherwise it's
possible for newly-added servers to query another newly-added server and get a
non-error nil response for that key ID.

Ensure that we're setting the correct reply index in the blocking query.

Note that the "not found" case does not return an error, just an empty key. So
as a belt-and-suspenders, update the handling of empty responses so that we
don't break the loop early if we hit a server that doesn't have the key.

Wait until we're sure the FSM is current before we try to initialize the
keyring.

Also, if a key is rotated immediately following a leader election, plans that
are in-flight may get signed before the new leader has the key. Allow for a
short timeout-and-retry to avoid rejecting plans