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What happened: New code was supposed to fall back to last height changed when/if it failed to find validators at checkpoint height (to make release non-breaking). But because we did not check if validator set is empty, the fall back logic was never executed => resulting in LoadValidators returning an empty validator set for cases where `lastStoredHeight` is checkpoint height (i.e. almost all heights if the application does not change validator set often). How it was found: one of our users - @sunboshan reported a bug here https://github.com/tendermint/tendermint/pull/3537#issuecomment-482711833 * use last height changed in validator set is empty * add a changelog entry