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Previously we allow PolicyValue to always represent certain strictness,
i.e. comparable.

However, with the incoming introduction of enum type PolicyValue, this
will no longer hold true. There is no logical ordering of strictness
for some enums, e.g. Enum.RED > Enum.BLUE does not make sense.

This CL adds the support for non-comparable PolicyValue.

Change-Id: I1f260d6e357e5e09c4577d5cd08af87e2df5f21e
Reviewed-on: https://chromium-review.googlesource.com/c/chromium/src/+/2343606Reviewed-by: Ian Clelland <iclelland@chromium.org>
Reviewed-by: Dmitry Gozman <dgozman@chromium.org>
Commit-Queue: Charlie Hu <chenleihu@google.com>
Cr-Commit-Position: refs/heads/master@{#797567}