In change I33a3cccb the behavior of the "Create Change" and "Follow
Up" buttons was changed so that new changes are always created as
drafts.
The `change.allowDrafts` setting was not considered, which allowed a
new draft change to be created even when disabled. It was then not
possible to publish the draft change because the publish draft action
checks the `change.allowDrafts` setting.
Change it so that changes are only created as draft when draft changes
are allowed. When not allowed, create regular new changes.
Change-Id: Ie8bea86218d23d2efb30afee4500e4eb8c59e2c2
0a1da0981b