[v13] Allow sudoer files to be created without host users

[lxea]

backport #31793

[programmerq]

I tried compiling this locally to see if it fixed an issue that a customer had raised, and I got the same error that CI is failing.

# github.com/aquasecurity/libbpfgo
In file included from /go/pkg/mod/github.com/aquasecurity/libbpfgo@v0.4.5-libbpf-1.0.1/libbpfgo.h:16,
                 from /go/pkg/mod/github.com/aquasecurity/libbpfgo@v0.4.5-libbpf-1.0.1/libbpfgo.go:5:
/usr/libbpf-1.0.1/include/bpf/libbpf.h:70:54: warning: ‘enum bpf_link_type’ declared inside parameter list will not be visible outside of this definition or declaration
   70 | LIBBPF_API const char *libbpf_bpf_link_type_str(enum bpf_link_type t);
      |                                                      ^~~~~~~~~~~~~
# github.com/gravitational/teleport/lib/services
lib/services/access_checker.go:900:27: type func(a "github.com/gravitational/teleport/api/types".Role, b "github.com/gravitational/teleport/api/types".Role) int of func(a types.Role, b types.Role) int {…} does not match inferred type func(a "github.com/gravitational/teleport/api/types".Role, b "github.com/gravitational/teleport/api/types".Role) bool for func(a E, b E) bool