Move policy upgrade to DPMS ctor

Currently upgrade happens on lock settings ready, but by that time
WifiService alredy calls to isCommonCriteriaModeEnabled and this
results in obsolete values left in cache. Moving upgrade to ctor
avoids this issue.

Both old and new upgrade invocations happen during
SystemServer.startOtherServices, while all services on which the upgrade
depends, namely UserManager and PackageManager are started earlier in
SystemServer.startBootstrapServices.

Bug: 198768109
Test: upgrade from Android 11 and check device policy cache
Change-Id: Ie4c17a617bbed176bc87fc598f56ccbc49569009