Always replace a failed resource on rollback

If a resource is in the DELETE_FAILED state after an update, then we need
to create a replacement for it when rolling back the update, since its
actual underlying status cannot be determined (it may still exist, or it
may actually be gone or unusable).

Change-Id: Ibd2beae673b28d957d71cc7ae25070639e36bd36
Merge "Always replace a failed resource on rollback"