Fixed bug in copying filecon statements.

It was assumed that if a named context was not being used, then a
normal context should be copied, but it is valid for a filecon to
have no context.
Put all of the ordered lists (sids, classes, cats, and sensitivities)
into the policy db before checking that all of the members are in
an order statement.

This is to ensure that all of the ordered lists get properly destroyed
if one of the members is not in an order statement and the error path
is followed.