build: fix devserver sh_binary not working on systems with runfiles enabled #23721
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The devserver currently does not work on systems with runfiles enabled.
This is commonly macOS and Linux. The devserver breaks here because we
do not have a runfile tree directory built as this would cause a significant
slow-down for RBE and caching.
This commit ensures the runfile manifest is consulted always, unless the
dev-server runs in a test where a runfile directory is resolved to the test
directory.
Inside the test action, with runfiles enabled, there would be no runfile
manifest file.. causing the devserver to fail. e.g.