policy: fix global default policy initialization
policy: fix global default policy initialization

Allow all routes coming in and going out by default

Signed-off-by: ISHIDA Wataru <15703620d0b11e835ab4f34ebf88f2f40cce783e@lab.ntt.co.jp>

Dipsingh/gobgp,a16/gobgp,osrg/gobgp,j-kato/gobgp,a16/gobgp,a16/gobgp,tamihiro/gobgp,ishidawataru/gobgp,tamihiro/gobgp,ishidawataru/gobgp,osrg/gobgp,osrg/gobgp,Dipsingh/gobgp,osrg/gobgp,fujita/gobgp,a16/gobgp,a16/gobgp,fujita/gobgp,fujita/gobgp,ishidawataru/gobgp,j-kato/gobgp,a16/gobgp,a16/gobgp,tamihiro/gobgp,tamihiro/gobgp,Dipsingh/gobgp,fujita/gobgp,j-kato/gobgp