Allow setting password during provisioning if FRP is not supported

On devices without PersistentDataBlock support, we should
always allow setting up password during provisioning.

Bug: 157451551
Test: make RunSettingsRoboTests
      ROBOTEST_FILTER=com.android.settings.password
Test: On cuttlefish, file ACTION_SET_NET_PASSWORD before SUW completes
Change-Id: Ic7b5d99b38e6427750ce70fa7e38f7ef6054d4ad