Both BFM services go Passive

[HagarAH]

Summary:
Whenever minipg is shutdown on all the nodes and the databases are down, both BFM services become passive and are unable to do any work. This problem persists even after starting minipg back up.

Steps:

1. Start minipg and both passive and active BFM
2. Watch the cluster through the WEB GUI to ensure stability
3. Shut down minipg services on all nodes
4. Bring down databases on all nodes
5. Watch BFM become passive on each server's WEB GUI