Show background location permission rationale for first request

The new UX flow for requesting background location access is dependent
on apps explaining their rationale starting from the first time they
request.
Note: This changes the behavior of the api

Test: Manual by using `adb shell am compat disable`
Fixes: 147316723
Change-Id: Ia78c965564a39ac152e9be6e77573a8bc65c4144