net_sched: unify the init logic for act_police

Jamal reported a crash when we create a police action
with a specific index, this is because the init logic
is not correct, we should always create one for this
case. Just unify the logic with other tc actions.

Fixes: a03e6fe5

 ("act_police: fix a crash during removal")
Reported-by: Jamal Hadi Salim <jhs@mojatatu.com>
Signed-off-by: Cong Wang <xiyou.wangcong@gmail.com>
Acked-by: Jamal Hadi Salim <jhs@mojatatu.com>
Signed-off-by: David S. Miller <davem@davemloft.net>