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* When create_empty_blocks=false, we don't enterPropose until we * receive a transaction, but if we then receive a complete proposal, * we should enterPrevote. A guard in addProposalBlockPart was checking if * step==Propose before calling enterPrevote, but we need it to be step<=Propose, * since we may not have seen a tx. * This was discovered by disabling mempool broadcast, sending txs to * peers one a time, and observing their consensus logs.
See the consensus spec and the reactor consensus spec for more information.