Add a persistence mechanism for panels' packages

This will allow to persist the packages of apps that provide device
controls panels after they are authorized (opted in) by the user.

Packages that are in the seeding list (config_controlsPreferredPackages)
will be auto-added, but only when creating the set of authorized package
for the first time (per user).

Test: atest AuthorizedPanelsRepositoryImplTest
Fixes: 264414289

Change-Id: Ic23e6172158bba3cf960e81919978ec62da79150