## Problem
The code for tenant create and tenant attach was just a special case of
what upsert_location does.
## Summary of changes
- Use `upsert_location` for create and attach APIs
- Clean up error handling in upsert_location so that it can generate
appropriate HTTP response codes
- Update tests that asserted the old non-idempotent behavior of attach
- Rework the `test_ignore_while_attaching` test, and fix tenant shutdown
during activation, which this test was supposed to cover, but it was
actually just waiting for activation to complete.
