Handle isUsbDataSignalingEnabledForUser PO case

If there is no DO or COPE PO, then
usb data signaling is enabled.

Bug: 180547881
Test: Manual testing
      atest com.android.server.devicepolicy.DevicePolicyManagerTest
Change-Id: I32a1f73ca403b6c1c38b7c6fa70cc2f0f0830324

services/devicepolicy/java/com/android/server/devicepolicy/DevicePolicyManagerService.java

@@ -16696,7 +16696,7 @@ public class DevicePolicyManagerService extends BaseIDevicePolicyManager {
         synchronized (getLockObject()) {
             final ActiveAdmin admin = getDeviceOwnerOrProfileOwnerOfOrganizationOwnedDeviceLocked(
                     UserHandle.USER_SYSTEM);
-            return admin != null && admin.mUsbDataSignalingEnabled;
+            return admin == null || admin.mUsbDataSignalingEnabled;
         }
     }