upstart/SELinux problem loading the wrong policy with kernel version change

[Daniel J Walsh <dwalsh@redhat.com>]

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If you have a kernel that supports policy.21 and a tool chain that
supports policy.22 newer versions of policy and semanage changes will
update policy.22.  However if there is a policy.21 around upstart will
load this on a reboot.  (I guess init would have done the same.)

If the policy.21 does not exist libselinux will grab the highest policy
version and try to load it.

This is causing unlabeled_t files to be showing up.  Basically if I
install a new policy with a new type, and then assign the context to a
file, the next reboot will cause the file to be labeled unlabeled_t.

I suggest that we either remove policy versioning all together, or
change libselinux to default to loading the highest policy version.
Either way the current loading of policy is broken.

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