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Support selecting non-INTERNET networks as underlying networks
This commit allows VCN to select underlying Cell networks according to caller configured network capabilities instead of always only selecting INTERNET networks as underlying networks. This commit also makes sure that if all of the network candidates fail to match caller configured network templates, VCN can still select an INTERNET network as a fallback but will never select a non-INTERNET network. Bug: 245618320 Test: FrameworksVcnTests(new tests), CtsVcnTestCases Change-Id: I6eca0331e4bc6804a500fbed9909bb91b1e80d2d