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