Do not create snapshot on first init

Currently the first time the RecoveryController is initialized, it sets
a snapshot pending. This is because there is no cert, so it installs the
cert, and the existing logic also sets snapshot pending. This fixes that.

Bug: 74949975
Test: runtest frameworks-services -p \
      com.android.server.locksettings.recoverablekeystore

Change-Id: If150524c3fc41fd2ee9cc6310109b41d62dcbb29