Fix a lot of OVERLAY_CHANGED broadcasts

A regression was introduced during refactoring where replacing with
PackageStateMutation. This caused a lot of OVERLAY_CHANGED sent while
switching to Owner user from Secondary user.

This CL modifies the logic to check if OverlayPaths can be updated
like Android S.

Bug: 245485968
Test: manually verified that OVERLAY_CHANGED not sent as expected.
Change-Id: I247aa6d2abce28eebe60e622dbffad12d1c9540c