Apache reload issue when it is stopped

Since 4b49e409f8 devstack
started to use reload instead of restart.

Using reload in devstack for a fresh install,
does not makes too much sense unless multiple service
plugin touches the same service configs.

Systemd rejects to reload something,
which was not loaded before.

 $ sudo /bin/systemctl reload httpd
 httpd.service is not active, cannot reload.

We will switch to `reload-or-restart` action instead of `reload`,
it is more likely the action what the previous patch wanted.

Change-Id: I70d597fbe4a8923d937ba8432e29edefb27d1058

functions-common

@@ -2310,11 +2310,12 @@ function stop_service {
     fi
 }
 
-# Service wrapper to stop services
+# Service wrapper to reload services
+# If the service was not in running state it will start it
 # reload_service service-name
 function reload_service {
     if [ -x /bin/systemctl ]; then
-        sudo /bin/systemctl reload $1
+        sudo /bin/systemctl reload-or-restart $1
     else
         sudo service $1 reload
     fi