Broadcast Bluetooth state to OFF properly

In current logic, we broadcast Bluetooth state OFF at BLE_ON state.
However, if Bluetooth gets crashed, we won't have the chance to send OFF
intent as we never get to BLE_ON.

This change makes the BluetoothManagerService skips the OFF intent only
if the previous state is a BLE state.

Bug: 189271317
Bug: 195032127
Test: manual
Change-Id: I3936766ab8bdd45d59550dacb64bdc0323bb424d
(cherry picked from commit 1b2f8bc9843b2d6ba7ba199a89412c8fb632f508)