JobScheduler: Enforce quota to jobs started from TOP state

Jobs started when the app was on TOP proc state are not exempted
from quota controller after the app leaves the top states

Bug: 374323858
Test: atest CtsJobSchedulerTestCases
Test: atest FrameworksMockingServicesTests:com.android.server.job.controllers.QuotaControllerTest
Flag: com.android.server.job.enforce_quota_policy_to_top_started_jobs
Change-Id: I31b565da698d73f1f989098d5afb62315cc34782