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: I50fec4e7d004be5c9dabbda0084d3c2754f140c7