Refactor chip::DeviceController API to decouple from Commissioner API

[pan-apple]

Problem

The current controller API is more coupled with the commissioner API than needed.

1. Move it out to a separate file
2. Once Implement device to device communication manager Implement device to device communication manager #11533 is done, refactor the controller code to use the new class (from Implement device to device communication manager #11533).

[stale]

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[stale]

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