Cleaned up a lot of the plumbing to make it consistently follow this
logic: clone the preference order; filter by user preference; filter by
FIPS policy. There should be no behavior changes.
Updates #71757
Change-Id: I6a6a4656eb02e56d079f0a22f98212275a400000
Reviewed-on: https://go-review.googlesource.com/c/go/+/657096
LUCI-TryBot-Result: Go LUCI <golang-scoped@luci-project-accounts.iam.gserviceaccount.com>
Auto-Submit: Filippo Valsorda <filippo@golang.org>
Reviewed-by: Daniel McCarney <daniel@binaryparadox.net>
Reviewed-by: David Chase <drchase@google.com>
Reviewed-by: Junyang Shao <shaojunyang@google.com>
