This APIs are primarily used by CarService, which always runs as
system user, so they cannot rely on the calling user id.
Test: atest CtsDevicePolicyManagerTestCases com.android.cts.devicepolicy.DeviceOwnerTest#testCreateAndManageUser_newUserDisclaimer # on automotive and phone
Test: manual verification
Change-Id: I56bb8cd12be766ef9da6c71a524912f7f8680aad