Device admin perm adjustment -> perm controller

Move permission policy adjustments from on behalf of device admin to
permission controller.

The permission controller has a higher level view on permissions than
the system server, hence advanced features are easier to implement.

Test: atest --test-mapping packages/apps/PermissionController/src/com/android/packageinstaller/permission/service:presubmit
Change-Id: Ic2c7de8f3fd50129e8d19ff47e83399f87da1614
Fixes: 124128308