Currently we use the "activation" of a crucible upstairs as an indication that all three of the downstairs in the region set have been made consistent with each other. We use this state to determine that a region replacement has completed and a newly provided downstairs has been made consistent with the other existing downstairs.
When we activate with 2/3 downstairs (see PR oxidecomputer/crucible#1733), that will mean that "activation" is no longer a guarantee that all three downstairs have been made consistent.
We need another solution that the control plane can use to know when a region replacement has reached a state that it is considered completed.