Policy.json should be defined by user

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

Change-Id: I62dc05832a124b361a8d608326cbc6168af754c8
diff --git a/tests/pillar/control_single.sls b/tests/pillar/control_single.sls
index 1f8a28e..2eb905e 100644
--- a/tests/pillar/control_single.sls
+++ b/tests/pillar/control_single.sls
@@ -46,3 +46,7 @@
       user: nova
       password: password
       tenant: service
+    policy:
+      create_subnet: 'rule:admin_or_network_owner'
+      'get_network:queue_id': 'rule:admin_only'
+      'create_network:shared':