Make RuleBuilder methods take Paths

There are no more Make paths being used in Soong now that
dexpreopting and hiddenapi are in Soong. Use the Path types
in the inputs to RuleBuilder, and fix all users of RuleBuilder.

This reapplies I886f803d9a3419a43b2cae412537645f94c5dfbf with
fixes to disable preopt for Soong-only builds when the global
dexpreopt.config doesn't exist.

Test: all soong tests
Test: m checkbuild
Change-Id: I4dae9ecd5de22f062f9478ec8f0747f099cf8190