Give user-initiated jobs immediacy privilege for TOP app.

Allow user-initiated jobs to start immediately if the app is currently
in the TOP state. We also want to give that privilege when the app is in
BAL state, and this refactor makes it easier to add that privilege in
the future.

Bug: 261999509
Test: atest FrameworksMockingServicesTests:JobConcurrencyManagerTest
Change-Id: I0f5dc27522427b07f908a3b84581dbb48b524a02