Allow Root to call shell command

Repro step:
* switch to second user (guest)
* enable adb as root
* `adb shell cmd bluetooth_manager enable` -> fail

Bug: 263554371
Test: Manual
Change-Id: I3a479fbd3e2fe21b1a1b872a15aa6df4ad286356
(cherry picked from commit 145626e4)
Merged-In: I3a479fbd3e2fe21b1a1b872a15aa6df4ad286356