nfp: add support to offload police action from flower table

Offload flow table if the action is already offloaded to hardware when
flow table uses this action.

Change meter id to type of u32 to support all the action index.

Signed-off-by: Baowen Zheng <baowen.zheng@corigine.com>
Signed-off-by: Louis Peens <louis.peens@corigine.com>
Signed-off-by: Simon Horman <simon.horman@corigine.com>
Signed-off-by: Jakub Kicinski <kuba@kernel.org>