Fix NetworkPolicyManagerService deadlock

When NetworkPolicyManagerService binder call Phone process
while holding a lock, the lock will block Applications binder
call, then system_server's binder will exhaust, may cause
dead lock.

The solution is don't call phone process while holding a lock.

Bug: 146537388
Test: com.android.server.net.NetworkPolicyManagerServiceTest
com.android.cts.net.HostsideRestrictBackgroundNetworkTests

Change-Id: I57aac7f8f5c115ce68a69f84286c58c80c22fb55