Stop failing when key files are zero-length

Stop failing when key files are zero-length

Instead, generate new keys, and overwrite the empty key files.
Adds FN_EMPTY to file_status_t and file_status.
Fixes bug 13111.

Related changes due to review of FN_FILE usage:
Stop generating a fresh .old RSA key file when the .old file is missing.
Avoid overwriting .old key files with empty key files.
Skip loading zero-length extra info store, router store, stats, state,
and key files.