Decide on navigation to task by policy in Virtual Device

Adds the implementation to allow or block navigation to a
new task in the policy controller for a virtual device. Will
only change behavior if the cross navigation allow or block
list is included and the navigation does not occur from
the default display.

Bug: 223915401
Test: atest WmTests:DisplayWindowPolicyControllerHelperTests
      atest CtsVirtualDevicesTestCases
      atest WmTests:ActivityStarterTests
      Added test in ag/17503735
Change-Id: I3dfb9dd93c0edf4634320c52a3fc40c4bf473085