Refactor policy parsing

This change removes the ability for an overlayable resource to be
defined in multiple policy blocks within the same overlayable. This
change also changes aapt2 to use a bit mask to keep track of the parsed
policies.

Bug: 110869880
Bug: 120298168
Test: aapt2_tests
Change-Id: Ie26cd913f94a16c0b312f222bccfa48f62feceaa