When building userdebug or eng builds, we still want to build the user
policy when checking neverallow rules so that we can catch compile
errors.

Commit c0713e86 split out a helper function but lost one instance of
using user instead of the real variant.  This restores that one and
adds it to the neverallow check.

Bug: 74344625
Test: Added a rule that referred to a type defined only
in userdebug and eng and ensure we throw a compile error when building
userdebug mode.

Change-Id: I1a6ffbb36dbeeb880852f9cbac880f923370c2ae
(cherry picked from commit 053cb341)