Re: [w3c/payment-handler] Relation between merchant order of payment methods and payment app order of instruments (#116)

PROPOSED:

* The user agent MUST favor user-side order preferences (based on user configuration or behavior) over any other order preferences.
* The user agent MUST make available matching payment handlers that correspond to the supported payment methods provided by the payee.  However, the user agent is NOT REQUIRED to make available payment handlers that pose security issues and SHOULD inform the user when a payment handler is unavailable for use.

Notes:
* In the second bullet, changed "display" to "make available." This bullet is about access, not
simultaneous display. We have been discussing user experiences such as "show a default and a way to access the full list of instruments"; that would be supported by this bullet.
* I have added a sentence to take into account security as a reason not to make available a matching app. 
* In this proposal, I have dropped this bullet: "The user agent SHOULD allow the user to configure the display of matching payment handlers to control the ordering and define preselected defaults.". The functionality of "defaults" is being discussed in a separate issue.

Ian

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