embargo is_active still getting updated from SYSTEM_Embargo_Definition.json during upgrade

[smutniak]

updates/reboots still loading is_active status from config files such that None, JournalHold, and Patent Hold (for one particular site) gets reverted to is_active:true and needs to be manually reset to is_active:false. Changes were made in that site's config file but a more general solution is needed.