Mark requests as active if they don't cause a change in the pending

state.

This is the case when a request comes in that matches the current
committed state.

This also fixes an issue where a older requested state would become
committed and always set the newest request as active, which isn't
always the case if a request has come in (with a different state) while
the service is awaiting callback from the policy.

Fixes: 179961602
Test: atest DeviceStateManagerServiceTest

Change-Id: Ifd818840de0f39a33cca733c23d6859582006aa8