DO NOT MERGE Fix intent filter priorities

Since this is a backport, there is only one rule that guards intent
filter priorities:
1) Updates will NOT be granted a priority greater than the priority
   defined on the system image.

NOTE: I had to bring in pieces of ag/526831 so intent filters could
be collected and matched

Bug: 27450489
Change-Id: Ifcec4d7a59e684331399abc41eea1bd6876155a4