blk-throttle: add downgrade logic

When queue state machine is in LIMIT_MAX state, but a cgroup is below
its low limit for some time, the queue should be downgraded to lower
state as one cgroup's low limit isn't met.

Signed-off-by: Shaohua Li <shli@fb.com>
Signed-off-by: Jens Axboe <axboe@fb.com>