Finer grained permissions for ctl. properties

Currently, permissions for ctl. property apply to each action verb, so
if a domain has permissions for controlling service 'foo', then it can
start, stop, and restart foo.

This change implements finer grainer permissions such that permission
can be given to strictly start a given service, but not stop or
restart it.  This new permission scheme is mandatory for the new
control functions, sigstop_on, sigstop_off, interface_start,
interface_stop, interface_restart.

Bug: 78511553
Test: see appropriate successes and failures based on permissions

Change-Id: Ibe0cc0d6028fb0ed7d6bcba626721e0d84cc20fa