wgengine/router: refactor in prep for Linux netlink-ification

Pull out the list of policy routing rules to a data structure
now shared between the add & delete paths, but to also be shared
by the netlink paths in a future change.

Updates #391

Change-Id: I119ab1c246f141d639006c808b61c585c3d67924
Signed-off-by: Brad Fitzpatrick <bradfitz@tailscale.com>
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