Make `/system-security-plan/system-implementation/users` optional#2109

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aj-stein-gsa wants to merge 1 commit intousnistgov:developfrom aj-stein-gsa:2108-ssp-user-optional

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Commits on Feb 19, 2025

Change min cardinality for user from 1 to 0 for usnistgov#2108
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