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Add deferral-until-active policy to ACTION_SHUTDOWN broadcast.
We shouldn't need to wake the frozen apps for delivering this broadcast. This is only sent to registered receivers and apps would have been killed and wouldn't have received this broadcast if weren't freezing them. Bug: 313680784 Test: boot and shutdown works Change-Id: I06412e2a93190a45436ec85c541a128d3cb395f1