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When deploying new safekeepers, we don't immediately want to send traffic to them. Maybe they are not ready yet by the time the deploy script is registering them with the storage controller. For pageservers, the storcon solves the problem by not scheduling stuff to them unless there has been a positive heartbeat response. We can't do the same for safekeepers though, otherwise a single down safekeeper would mean we can't create new timelines in smaller regions where there is only three safekeepers in total. So far we have created safekeepers as `pause` but this adds a manual step to safekeeper deployment which is prone to oversight. We want things to be automatted. So we introduce a new state `activating` that acts just like `pause`, except that we automatically transition the policy to `active` once we get a positive heartbeat from the safekeeper. For `pause`, we always keep the safekeeper paused.