Allow Background Location Access for Shell

The shell has COARSE and FINE permission, but it
needs background access to support CTS test cases
that must be run with elevated permissions from
the shell.

Bug: 159236070
Test: atest PhoneStateListenerTest#testBarringInfo

Change-Id: Iba3fcb3a43c5df3c30dadf6b7733eaee03d1d0e3