Retry setup after failed and preference changed

When setup data takes a long time, and QNS changes
preference during this time, we should retry data
setup again on the new transport after setup data
fails.

Fix: 231182246
Test: Manual testing. Also able to repro this with
the new unit test in this CL, and verify the fix
is working.

Merged-In: Iecc9c8ceea0da60f5cbd483c20d269533103bedf
Change-Id: Iecc9c8ceea0da60f5cbd483c20d269533103bedf