Ensure device_owners2.xml is always written.

Bug: 335232744
Test: Manual, upgrading from T-QPR3
(cherry picked from https://googleplex-android-review.googlesource.com/q/commit:3abc07421d5bed187589d6deb48da07e4c407203)
Merged-In: I7a7dba56f2951e7e3699b19d2517d198dc8f9d35
Change-Id: I7a7dba56f2951e7e3699b19d2517d198dc8f9d35
24D1-dev is based on 24Q2-release. Therefore, we merged this CL to 24D1-dev.