init: Make encryption action an argument to mkdir

FscryptSetDirectoryPolicy no longer tries to infer the action from the
filename. Well mostly; it still assumes top-level directories in /data
should be encrypted unless the mkdir arguments say otherwise, but
it warns.

Bug: 26641735
Test: boot, check log messages
Change-Id: Id6d2cea7fb856f17323897d85cf6190c981b443c