Re: [w3c/payment-request] Define handling of multiple applicable modifiers (#684)

Tl;dr: this is a Payment Handler specific issue. 

Looking at the history of this bug, related discussions, etc. This is what needs to happen (I think):

 * The Payment Request spec just gathers Payment Method Modifier tuples and then passes them to the user's selected Payment Handler.  
 * Payment Handler (e.g., basic card) then needs to make a decision about how to honor the modifiers. That is, in order, it can look at what the user has picked, and run down the list matching from least specific, to most specific. 

Thus, he Payment Request spec can't help here, because it doesn't know anything about the `.data`. 

Best we can do in Payment Request is suggest people consult the payment handler for matching order.

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