policy_hal: restore device if it differs from the stopped output

Currently, restore device for the output handle can be ignored if
the new device is the same with current device of this output, this
can lead playback for this output keeps on the route of the stopped
output.
Instead, need to compare the device with the previous active device
of the stopped output to decide if it's a spurious routing request.

CRs-Fixed: 2136994
Change-Id: I3e5eb8b3aa68b050a84515b50b9745864826129a