Don't mutate permission state when setting app op from PermissionPolicyService.

Previously the REVOKED_COMPAT flag may be updated when
PermissionPolicyService is setting app op mode, however it should not
do so because the app op mode is coming right from the permission
state it was seeing. Mutating permission state would lead to incorrect
permission state when PermissionPolicyService and PermissionController
are running concurrently, and by no longer mutating permission state
in PermissionPolicyService, the app op state will eventually arrive at
the correct state even when there's some concurrency.

Bug: 149267332
Bug: 136503238
Test: manual
Change-Id: I9b02bc3f42a20ba441d5af9fd1b8a9729d8d0480