A web content admin should be able to create and manage templates which are not based on structures, so they can include these "generic templates" in other templates.
The manage menu in Web Content will include a "Templates" option. By clicking it, the web content admin will be able to add and manage any templates, including templates without an structure.
Steps to reproduce:
1. Navigate to Admin > Site Administration > Web Content
2. Click Manage drop down (Assert "Templates" appears)
3. Click Templates
4. Add a template
5. Edit a template
Assert user can create and edit templates.