Give apps a grace period for TOP.

Give apps a grace period starting after they exit the TOP state in which
EJs can start regardless of quota status and running EJs won't count
towards quota.

Bug: 171305774
Test: atest CtsJobSchedulerTestCases
Test: atest FrameworksMockingServicesTests:QuotaControllerTest
Change-Id: I894e84f37681f6466a4ebf14012852f86eaa42c9