Implement consentless bugreport mechanism

When required conditions are met, bugreport could be approved silently:
 1. BugreportMode allows consentless bugreport.
 2. Current build type is "userdebug" or "eng".
 3. Caller has its OP_CAPTURE_CONSENTLESS_BUGREPORT_ON_USERDEBUG_BUILD App-Op ALLOWED.

 - Adds an FLAG_ALLOW_CONSENTLESS_BUGREPORT in IncidentManager
 - Updates PendingReports.authorizeReportImpl() that when consentless bugreport allowed and
   build type is userdebug or eng and corresponding AppOps is allowed, the bugreport could be approved silently.

Legal tracker bug: 262936053
Privacy tracker bug: 262936015
Security tracker bug: 265360498

Bug: 259436697
Bug: 262628255
Bug: 263163716
Test: builds
Test: Manual test
Change-Id: I6c2fb50d307c8d227774b76ab86d608bd95027fa