If two config tx that modify consenter sets are sent back-to-back,
the second one is revalidated because sequence number has advanced.
And we should perform consenter set check to make sure it only udpates
set by 1.

Change-Id: I9f7e54a3c0854d1f130d4a061466edd398e35bde
Signed-off-by: Jay Guo <guojiannan1101@gmail.com>