state: Use last height changed if validator set is empty (#3560)
What happened:
New code was supposed to fall back to last height changed when/if it
failed to find validators at checkpoint height (to make release
non-breaking).
But because we did not check if validator set is empty, the fall back
logic was never executed => resulting in LoadValidators returning an
empty validator set for cases where `lastStoredHeight` is checkpoint
height (i.e. almost all heights if the application does not change
validator set often).
How it was found:
one of our users - @sunboshan reported a bug here
https://github.com/tendermint/tendermint/pull/3537#issuecomment-482711833
* use last height changed in validator set is empty
* add a changelog entry