Fixed ALLOWED_FLAGS_FOR_CREATE_USERS_PERMISSION to support full users and profiles.

Test: adb unroot && adb shell pm create-user --pre-create-only

Bug: 167698977
Bug: 168251532
Bug: 160252062
Bug: 168128662
Bug: 167454361

Change-Id: I48408233d6299007aacd38a67d9723b2b350d3c5