2 restarts of Locator results in split brain

Restarting the locator and listing members works properly. Repeating the process a second time shows no cluster members.

To repro:

1) start a locator
2) start a server
3) list members (shows locator and server)
4) stop the locator
5) restart the locator (same as step 1)
6) list members (shows locator and server)
7) stop the locator a second time
8) restart the locator a second time (same as step 1)
9) list members shows only the locator

Notes:

• This was done on a Windows machine using latest geode/develop (as of 9/11/2017)
• Was tried with and without using protobuf=true flag, and fails in both cases)