Merge "Allow non-VPNs to have underlying networks." am: 5903d5646c am: 9a7c9c3c06 am: 8d1e3166cd

Original change: https://android-review.googlesource.com/c/platform/packages/modules/Connectivity/+/1753619

Change-Id: I397060ae88f5c020ce9df080807f64c05742aa67