Sorting and merge Emergency number better

Apply more parameters to sort Emergency number list, it is important
to keep two lists Collection-equal to each other if they have the same
contents. Otherwise, it will introduce more unnecessary updates in
 EmergencyNumberTracker and it may confuse users.

Test: atest EmergencyNumberTest
Bug: 131922424
Change-Id: I64a43886d4000b261ea703b081e6278b0307805f
Merged-In: I64a43886d4000b261ea703b081e6278b0307805f
(cherry picked from commit a1f21a5c)