Feature flag for toggling stop system packages default behavior

When the config value set to true, preloaded system apps will be
initially marked as "stopped=true". By default this feature is turned
off.

Bug: 249514169
Test: atest CtsContentTestCases:SystemPackageDefaultStoppedStateTest

Change-Id: I782ea11b90f2cb5bcea5189d4824483d2b4621d5