Limit LOCALE_CHANGED broadcast when init'ing.

Immediately when a device finishes booting, retrieveSettings() will
read out the current configuration details, including locale.  At
that point mProcessesReady has been set, meaning third-party apps can
be launched.  But we haven't started persistent apps yet!

If you have a persistent app (like com.android.phone) which also has
a somewhat related app (like com.android.stk) merged into the same
process, the LOCALE_CHANGED broadcast could start the process pointing
at an unexpected code/data location.

This change avoids this by only sending LOCALE_CHANGED broadcasts to
registered receivers (no manifest receivers) when the locale is being
read for the first time (initLocale).

Test: booted device with locked SIM
Bug: 31665819
Change-Id: I977a596501c6ba492005f98a2367e4b9f67e2dba