Apply delivery group policies to CONFIGURATION_CHANGED broadcast.

- The "set-defer-until-active" policy is applied so that the
broadcast targeted to apps in the Cached state is deferred until
they come out of that state.
- The "deliver-most-recent" policy is applied so that if there are
already pending broadcasts waiting to be delivered when a new
broadcast is sent, the old ones are discarded.

Bug: 271961533
Test: TH
Change-Id: I2d243fefac27ca3e358b4c9fff70b9a1a2c5b567