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Keyboard should be recreated with Shell::CreateKeyboard per user sign
in/out so to associate the new user to keyboard extensions. If the
keyboard extensions were associated with the previous user, it in turn
associated with an inactive IME and thus chrome.input.ime.sendKeyEvents
does nothing.

Currently the keyboard is recreated in Shell::OnSessionStateChanged when
the session state becomes ACTIVE. However, on the supervised user
creation window, the session state is not ACTIVE, but
LOGGED_IN_NOT_ACTIVE, which represents the state where the user
has signed in but the login UI is not hidden yet.
That's why virtual keyboard was not working there.

This CL fixes the issue by recreating the keyboard on LOGGED_IN_NOT_ACTIVE
too.

BUG=712873
TEST=Added unit test. Manually tested VK works:
- on supervised user creation window
- after multiprofile switch

Review-Url: https://codereview.chromium.org/2852403002
Cr-Commit-Position: refs/heads/master@{#480878}