Fixed permananent failure behaviors

1. Non-conditional based evaluations will no longer trigger
   setup data if the APN was marked as permanent failure earlier.
   Only environmental changes can result in data setup.
2. Permanent failure can be only applied to the failed APN. When
   this happens, frameworks retries the next non-permanent-failed
   APN.

Fix: 254752857
Fix: 249908875
Test: Manual (verified on JP carrier) + atest FrameworksTelephonyTests
     + Basic testing.
Merged-In: Ic43100635907153bce9631473c56f1edef187fc4
Change-Id: Ic43100635907153bce9631473c56f1edef187fc4