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Update Android NDK in `Dockerfile` to r28 (#1176) #419

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Run time

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Job	Run time
cache_deps	30s
cache_deps	23s
build	27m 28s
build	53m 36s
test	26m 53s
test	27m 19s
build_bazel	27m 27s
build_bazel	58m 28s
	3h 42m 4s