MB-11830 cached failover table even if empty

needed for cbtransfer which needs to parse table in json
even if it is empty

Change-Id: I47c909ce32f1b8e137220bb0f20e0964ad921ba8
Reviewed-on: http://review.couchbase.org/39967
Reviewed-by: Chiyoung Seo <chiyoung@couchbase.com>
Tested-by: Sundararaman Sridharan <sundar@couchbase.com>