Allow ALL_USERS in setUserRestrictionForUser

This will be used e.g. by the permission granting UI.

Fixes: 35612487
Test: 1. Installed facebook messanger and enabled chat-heads in private
         profile
      2. Opened work-profile camera which asks for location
         permission
      3. Chat head disappered during permission check
      4. Chat head re-appeared after permission check

Change-Id: Ie9a5e5379c20972f34945c9cb062cd8e3df483d4