Rationalize local resource acquisition

Move all local resource acquisition to where local execution actually happens.
Don't attempt to acquire resources per action, but only for individual spawns.
This significantly simplifies the code.

The downside is that we don't account for action-level work anymore. In
general, actions should not perform any process execution themselves, but
always delegate such work to a SpawnStrategy implementation.

This change makes sure that every Spawn has local resources set in a way that
is consistent with the previous state.

However, there are two actions - Fileset and FileWrite -, which are not spawns,
and so we now don't limit their concurrent execution anymore. For Fileset, all
work is done in a custom Fileset-specific thread pool, so this shouldn't be a
problem. I'm not sure about FileWriteAction.

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PiperOrigin-RevId: 149012600
MOS_MIGRATED_REVID=149012600

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