Change syntax for package declaration to put the `impl` keyword at the
start and remove the `api` keyword.
To support this, rearrange processing of package, library, and import
declarations to use the general modifier handling support in declaration
parsing rather than special-case logic.
There is an ambiguity in `impl package.Foo as Bar`, which we resolve by
treating `package` as an introducer after a modifier only if it's not
followed by `.`.