Fixed disabled Create User button if policy has no resource

[jinapurapu]

To test:

• Create the following Policy and apply it to a Console User:

    "Version": "2012-10-17",
    "Statement": [
        {
            "Effect": "Allow",
            "Action": [
                "admin:ListUserPolicies",
                "admin:ListUsers",
                "admin:AttachUserOrGroupPolicy",
                "admin:CreateUser",
                "admin:ListGroups"
            ]
        }
    ]
}

• Log into Console as User with the above policy and go to List Users screen, Create User button is enabled

fixes #3228