Fix policy manager loading

The policy manager was also failing to load because
it was using webinos-utilities, which was not present
in node_modules for this module.  This fixes that
problem.  It also automatically creates a new, valid
policy file when the policy manager starts, to get rid
of another error.

See also: https://github.com/webinos/webinos-pzp/pull/8

http://jira.webinos.org/browse/WP-968

Jira issue: WP-968