Update package context query on per user basis

If the call is coming for other users and package is not installed for system User, it was throwing Package not found exception. The package context should be created for the user as it is possible that package may not be installed for the system User.

Flag: EXEMPT bugfix
Bug: 346835927
Test: atest --user-type secondary_user_on_secondary_display CtsLocaleConfigTestCases
Test: atest CtsLocaleConfigTestCases
Change-Id: Id8d1373ba232ad464306a8ed1e50685f20ae9c29