With RFC3168 ECN, CWR SHOULD only be sent with new data

Overly conservative data receivers may ignore the CWR flag
on other packets, and keep ECE latched. This can result in
continous reduction of the congestion window, and very poor
performance when ECN is enabled.

Reviewed by: rgrimes (mentor), rrs
Approved by: rgrimes (mentor), tuexen (mentor)
MFC after: 3 days
Sponsored by: NetApp, Inc.
Differential Revision: https://reviews.freebsd.org/D23364