Exclude with no_wait restarts data distribution

In FDB 6.2, we added a `no_wait` flag to the exclude command that causes the command to exit rather than waiting for the exclusion to complete. The idea was that tools built on top of the CLI could run this command in a loop rather than running a single command that would block. We have seen cases where this kind of loop fails to make progress because the exclude commands are causing data distribution to restart, which prevents the exclusion from making any progress in the time before the next command runs. We should find a way to prevent this failure mode, especially in cases where the exclude is not making any changes to the exclusion list.