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Unify behavior of various cases of "no underlying networks"
Before this change, VPNs having no underlying networks would be marked as metered as the safe option, but VPNs having only disconnected underlying networks would be marked as unmetered. Fix this discrepancy. Bug: 79748782 Test: runtest frameworks-net Change-Id: I51c3badde29f43f692f383553bd98327d2da8dd1