Whitelist new CHANGE_OVERLAY_PACKAGES permission

The Shell application needs access to change which overlays are
enabled in OverlayManagerService.

Test: Manual: invoke adb exec-out cmd overlay enable some.package.name
when shell is not root (adb unroot on eng builds).
Change-Id: I1849f68e244cfc9b1e13eb0e673dde7be03cba6d
diff --git a/core/res/AndroidManifest.xml b/core/res/AndroidManifest.xml
index 64759ff..b3ae891 100644
--- a/core/res/AndroidManifest.xml
+++ b/core/res/AndroidManifest.xml
@@ -2138,7 +2138,7 @@
          runtime resource overlays.
          @hide -->
     <permission android:name="android.permission.CHANGE_OVERLAY_PACKAGES"
-        android:protectionLevel="signature|privileged|development" />
+        android:protectionLevel="signature|privileged" />
 
     <!-- ========================================= -->
     <!-- Permissions for special development tools -->