Reland "Enables/disables simulcast streams by allocating a bitrate of 0 to the spatial layer."

This is a reland of 18c4261339dc76b220e7c805e36b4ea6f3dd161d
Original change's description:
> Enables/disables simulcast streams by allocating a bitrate of 0 to the spatial layer.
>
> Creates VideoStreams & VideoCodec.simulcastStreams with an active field, and then allocates 0 bitrate to simulcast streams that are inactive. This turns off the encoder for specific simulcast streams.
>
> Bug: webrtc:8653
> Change-Id: Id93b03dcd8d1191a7d3300bd77882c8af96ee469
> Reviewed-on: https://webrtc-review.googlesource.com/37740
> Reviewed-by: Stefan Holmer <stefan@webrtc.org>
> Reviewed-by: Taylor Brandstetter <deadbeef@webrtc.org>
> Reviewed-by: Erik Språng <sprang@webrtc.org>
> Commit-Queue: Seth Hampson <shampson@webrtc.org>
> Cr-Commit-Position: refs/heads/master@{#21646}

TBR=sprang@webrtc.org,stefan@webrtc.org,deadbeef@webrtc.org

Bug: webrtc:8630
Change-Id: Ib3df6f9b7158bff362a7ec66fc57e368682c5846
Reviewed-on: https://webrtc-review.googlesource.com/40980
Reviewed-by: Seth Hampson <shampson@webrtc.org>
Reviewed-by: Erik Språng <sprang@webrtc.org>
Commit-Queue: Seth Hampson <shampson@webrtc.org>
Cr-Commit-Position: refs/heads/master@{#21688}
diff --git a/video/payload_router.cc b/video/payload_router.cc
index f221832..68d4ee8 100644
--- a/video/payload_router.cc
+++ b/video/payload_router.cc
@@ -258,8 +258,11 @@
       // rtp stream, moving over the temporal layer allocation.
       for (size_t si = 0; si < rtp_modules_.size(); ++si) {
         // Don't send empty TargetBitrate messages on streams not being relayed.
-        if (!bitrate.IsSpatialLayerUsed(si))
-          break;
+        if (!bitrate.IsSpatialLayerUsed(si)) {
+          // The next spatial layer could be used if the current one is
+          // inactive.
+          continue;
+        }
 
         BitrateAllocation layer_bitrate;
         for (int tl = 0; tl < kMaxTemporalStreams; ++tl) {