Erik Språng 05ce4ae31f Reland Issue 2061423003: Refactor NACK bitrate allocation
This is a reland of https://codereview.webrtc.org/2061423003/
Which was reverted in https://codereview.webrtc.org/2131913003/

The reason for the revert was that some upstream code used
RtpSender::SetTargetBitrate(). I've added that back as a no-op until we
it's been brought up to date.

TBR=tommi@webrtc.org

Review URL: https://codereview.webrtc.org/2131313002 .

Cr-Commit-Position: refs/heads/master@{#13418}
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