We want to be able to construct a miner fund whitelist that abides by consensus
rules, policy rules, or either. This makes it easy to write code that doesn't
care about the reason for the whitelist to be used (RPC, mining, etc), only the
contents of the whitelist, without writing special logic to handle two
different lists (consensus vs policy).
This patch introduces construction of the policy whitelist without using it.
Depends on D13071 and D13094