Currently we limit the enocder so that frames aren't encoded if the expected pacer queue is longer than 2s. However, if the queue is full and the bitrate suddenly drops (or there is a large overshoot), the queue time can be long than the limit. This CL allows the pacer to temporarily boost the pacing bitrate over the 2s window. BUG= Review URL: https://codereview.webrtc.org/1412293003 Cr-Commit-Position: refs/heads/master@{#10729}