[res] Allow changing RRO state that target android

'android' resources don't have overlayable definition, so
there's no way to enable or disable them for the apps that
aren't root or system. This isn't intentional, and the CL
enables it for the apps with the proper permission.

Bug: 364035303
Flag: android.content.res.rro_control_for_android_no_overlayable
Test: atest CtsHandleConfigChangeHostTests
Change-Id: I6894f1d073f9e50eaaa70675ab9372dca1de5fdf