system-helper: Add EnsureRepo operation

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This is used to create the /var/lib/flatpak repo if
needed so that other later operations work. We have
some partial support for it not working in various
operations (using the allow_empty argument) but
this is in no way complete. For example, this
can easily happen if you have a per-user installation
but no system one and then you run flatpak install
with no --user, then it will try to figure out
which one to use and die.

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