Create start and running bills for all priorities.

Create explicit start and running bills for each priority so we can
better determine when a job is allowed to run based on TARE policies.

Also defer min and low priority jobs more by ensuring an app can pay for
higher priority jobs before we run the lower priority jobs.

Bug: 158300259
Bug: 205714315
Test: See additional bills registered in dumpsys
Change-Id: I901d4d7cc6d02fc0b2084d90d7fe7a199148cb3b