The qpid-ha tool has two roles. It provides many commands for system administrators to monitor a cluster. It also provides the 'promote' command that should only be used by a cluster manager.
Qpid relies on an external cluster manager (usually rgmanager) to start and stop brokers and to ensure that only one broker is ever primary. This only works if rgmanager is the only agent that uses "qpid-ha promote". Otherwise we can end up with multiple primaries and cluster malfunction.
The difference between qpid-ha commands for system administrators vs. for cluster managers is not sufficiently clear. A sysadmin could make the mistake of thinking it is Ok to promote a broker without going through rgmanager. This needs to be more clear to avoid accidents.