Allow a few more starting builds

This governor is fairly agressive, tune this value slightly now.

At this level, we generally can't start builds fast enough for
the other governors to hit their limits.  The goal is to slow
things down only enough that they hit, but not surpass them.

Change-Id: If3bedaa86f4c61b03ae3c2c7171d0efedce26046
2 files changed