Fix race condition between broadcasting and carrierConfig changing.

If the carrier configuration is not fully loaded, exclude carrier
ntn sims from evaluation. And broadcast if the content has changed
in the subscriber information.

Bug: 378807916
Flag: EXEMPT bugfix
Test: SatelliteControllerTest
Change-Id: Ie17d1f43a0cbb286dfe4122ca9a7bc26ddb8cf00