Apply delivery group policies to DEVICE_POLICY_MANAGER_STATE_CHANGED.

- 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: 271530840
Test: atest services/tests/servicestests/src/com/android/server/devicepolicy/DevicePolicyManagerTest.java
Change-Id: I8576ad7748bc0ac533f5749146a989dd11aecff7