Failed intents don't get recompiled to flows

After a failed intent gets reinstalled, it's not compiled to flows.

Steps to reproduce it:
1. Start a 1-node onos and a 2-switch Mininet topology;
2. Install a p2p intent between the two devices;
3. Bring down the only link, the intent goes to "failed" state;
4. Bring up the link. Even if the intent goes to "installed" state, no flows are added to the data plane.