Fixes #9490

This will break a couple of SyTest that are expecting failures to be added to the response of a federation /send, which obviously doesn't happen now that things are asynchronous.

Two drawbacks:

    Currently there is no logic to handle any events left in the staging area after restart, and so they'll only be handled on the next incoming event in that room. That can be fixed separately.
    We now only process one event per room at a time. This can be fixed up further down the line.