memcg: always create memsw files if CONFIG_CGROUP_MEM_RES_CTLR_SWAP

Instead of conditioning creation of memsw files on do_swap_account,
always create the files if compiled-in and fail read/write attempts
with -EOPNOTSUPP if !do_swap_account.

This is suggested by KAMEZAWA to simplify memcg file creation so that
it can use cgroup->subsys_cftypes.

Signed-off-by: Tejun Heo <tj@kernel.org>
Acked-by: KAMEZAWA Hiroyuki <kamezawa.hiroyu@jp.fujitsu.com>
Acked-by: Li Zefan <lizf@cn.fujitsu.com>