Fix new scheduled tasks jumping the queue (#17962)

Currently, when a new scheduled task is added and its scheduled time has
already passed, we set it to ACTIVE. This is problematic, because it
means it will jump the queue ahead of all other SCHEDULED tasks;
furthermore, if the Synapse process gets restarted, it will jump ahead
of any ACTIVE tasks which have been started but are taking a while to
run.

Instead, we leave it set to SCHEDULED, but kick off a call to
`_launch_scheduled_tasks`, which will decide if we actually have
capacity to start a new task, and start the newly-added task if so.