Policy.json should be defined by user

User can override and add values to policy.json by creating flat
key-value structure under glance:server:policy.

Change-Id: I4db6b17ab1ff925aa20cd3565417a4b35ed4561e
diff --git a/tests/pillar/cluster.sls b/tests/pillar/cluster.sls
index ec8f989..3b6cd0d 100644
--- a/tests/pillar/cluster.sls
+++ b/tests/pillar/cluster.sls
@@ -40,3 +40,6 @@
     audit:
       filter_factory: 'keystonemiddleware.audit:filter_factory'
       map_file: '/etc/pycadf/glance_api_audit_map.conf'
+    policy:
+      publicize_image: "role:admin"
+      add_member: