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Change the label_file backend in libselinux to support systems
that only have file_contexts.bin files installed and do not ship
a file_contexts file at all.  Only fail if neither file can be
loaded.

Change-Id: I15660f4b3e4c5cb8ae0ec1498c74d6fcbb9a0400
Signed-off-by: Stephen Smalley <sds@tycho.nsa.gov>