Apply delivery group policies to SERVICE_STATE 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: 255527697
Test: TH
Change-Id: If698166cda15b3984047e7b7e328b774a46dfed6