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Normalize user active logic across Location APIs
Adds additional logic for location requests coming from the system server, such that those requests may allowed so long as location is on for the current user, even if the system user has location disabled. Even though the system server runs under the system user, it may need to service requests from or on behalf of other users. Test: presubmits + manual Change-Id: Ic9d7762e75fc930b7d26f1d1bf20b272d562939c