Update BAL controller to return codes in priority order

ASM uses BAL codes to restrict which activity launches are allowed.
BAL_ALLOW_BAL_PERMISSION is currrently allowed, whereas
BAL_ALLOW_GRACE_PERIOD is not. CTS Tests instrument with BAL permission
to launch activities from the background. However, due to the ordering
of checks, BAL_ALLOW_GRACE_PERIOD would be returned if the CTS app had
recently entered the background, rather than BAL_ALLOW_BAL_PERMISSION.

Bug: 267453720
Test: atest AccessibilityViewTreeReportingTest
Change-Id: I012fcf91301b022f57f078c80772e12bbce72581