Fix incorrect initial locale negotiation.

It turned out that calling ResourceManager.setDefaultLocalesLocked
and ResourcesManager.applyConfigurationToResourcesLocked
can be called before the locale negotiation is ready.

To fix this issue, move ResourcesManager setup flow after creating
application context.

This also introduces RuntimeException for notifying developers the
initialize order.

Bug: 27567902
Change-Id: Iab7ea384b039fb649fb52d06d45b2bfae21f9a8a