state: fix policy change race in UpdateNodeFromMapRequest

When UpdateNodeFromMapRequest and SetNodeTags race on persistNodeToDB,
the first caller to run updatePolicyManagerNodes detects the tag change
and returns a PolicyChange. The second caller finds no change and falls
back to NodeAdded.

If UpdateNodeFromMapRequest wins the race, it checked
policyChange.IsFull() which is always false for PolicyChange (only sets
IncludePolicy and RequiresRuntimePeerComputation). This caused the
PolicyChange to be dropped, so affected clients never received
PeersRemoved and the stale peer remained in their NetMap indefinitely.

Fix: check !policyChange.IsEmpty() instead, which correctly detects
any non-trivial policy change including PolicyChange().

This fixes the root cause of TestACLTagPropagation/multiple-tags-partial-
removal flaking at ~20% on CI.

Updates #3125