AWS::EC2::EIP Adding tags to existing EIP is forcing ec2:disassociateAddress behavior

## 1. Title

Updating an existing AWS::EC2::EIP with new tags should require no interruption and not force a replacement.

## 2. Scope of request

We have been creating EIPs in a separate CloudFormation template so that they are not part of the typical application deployment lifecycle and we avoid the risk of loosing the IP addresses. With the recent addition of being able to add tagging to an EIP via CloudFormation, we attempted to introduce tags on these EIP resources. We adding tags to an existing AWS::EC2::EIP, Cloudformation will fail while performing a `ec2:disassociateAddress` and not update the EIP resource.

## 3. Expected behavior

Per the [documentation for EIP tags](https://docs.aws.amazon.com/AWSCloudFormation/latest/UserGuide/aws-properties-ec2-eip.html#cfn-ec2-eip-tags), this operation should cause no interruption. With CloudFormation, it seems to always attempt a replacement rather than an update. If I add a tag to an existing EIP that is in use via the console or aws cli, it succeeds with no problem.

## 4. Suggest specific test cases

In our initial template, we declare the EIP like so:

```yaml
SomeEIP:
Type: AWS::EC2::EIP
Properties:
Domain: vpc
```

We added tags to the EIP resource this:

```yaml
SomeEIP:
Type: AWS::EC2::EIP
Properties:
Domain: vpc
Tags:
- Key: Name
Value: "Some EIP for App X"
```

When we make this change via Cloudformation via the AWS CLI, we get the following error:

```
UPDATE_FAILED: API: ec2:disassociateAddress You do not have permission to access the specified resource.
```
It should be noted that we are performing the deployment with admin privileges. Thus, it seems that merely adding tags are attempting force a drop and replace of the EIP rather than simply adding the tags to an existing EIP. Again, adding the tag via the console does not exhibit this behavior.

## 5. Helpful Links to speed up research and evaluation

According to the [documentation for EIP tags](https://docs.aws.amazon.com/AWSCloudFormation/latest/UserGuide/aws-properties-ec2-eip.html#cfn-ec2-eip-tags), this operation should cause no interruption. This behavior appears to be forcing a replacement of the EIP.

## 6. Category

Compute (EC2, ECS, EKS, Lambda...)

Start by reproducing the AWS::EC2::EIP update with the YAML shown, changing only the Tags property, and compare CloudFormation behavior with the AWS CLI or console. The issue mentions no repository files or tests; done means adding tags to an associated EIP without disassociation, replacement, or the reported permission error.

Written by the indexing model from the issue text.