boto_efs.create_tags seems not to work at all

Description of Issue

Due to salt not having states for EFS functionality I am using the boto modules. I have a pillar for AWS authentication which I specify using profile= and the other parameters are as per the documentation.

#  salt-call --local boto_efs.create_tags fs-93f9eb5b Name=awesome profile=my_profile

Passed invalid arguments: create_tags() takes at least 2 arguments (2 given).

Usage:

    Creates or overwrites tags associated with a file system.
    Each tag is a key-value pair. If a tag key specified in the request
    already exists on the file system, this operation overwrites
    its value with the value provided in the request.

    filesystemid
        (string) - ID of the file system for whose tags will be modified.

    tags
        (dict) - The tags to add to the file system

    CLI Example:

    .. code-block:: bash

        salt 'my-minion' boto_efs.create_tags

I can create an efs file system using:
salt-call --local boto_efs.create_file_system $fsname generalPurpose $fsname profile=my_profile

This also produces an error, but the file system IS created in AWS:

root@salt:/srv/salt# fsname="myfsname"
root@salt:/srv/salt# salt-call --local  boto_efs.create_file_system $fsname generalPurpose $fsname  profile=my_profile
[ERROR   ] An un-handled exception was caught by salt's global exception handler:
ParamValidationError: Parameter validation failed:
Invalid type for parameter Tags, value: {u'Value': u'myfsname', u'Key': u'Name'}, type: <type 'dict'>, valid types: <type 'list'>, <type 'tuple'>
Traceback (most recent call last):
  File "/usr/bin/salt-call", line 11, in <module>
    salt_call()
  File "/usr/lib/python2.7/dist-packages/salt/scripts.py", line 431, in salt_call
    client.run()
  File "/usr/lib/python2.7/dist-packages/salt/cli/call.py", line 57, in run
    caller.run()
  File "/usr/lib/python2.7/dist-packages/salt/cli/caller.py", line 138, in run
    ret = self.call()
  File "/usr/lib/python2.7/dist-packages/salt/cli/caller.py", line 237, in call
    ret['return'] = self.minion.executors[fname](self.opts, data, func, args, kwargs)
  File "/usr/lib/python2.7/dist-packages/salt/executors/direct_call.py", line 12, in execute
    return func(*args, **kwargs)
  File "/usr/lib/python2.7/dist-packages/salt/modules/boto_efs.py", line 167, in create_file_system
    client.create_tags(FileSystemId=response['FileSystemId'], Tags=tags)
  File "/usr/local/lib/python2.7/dist-packages/botocore/client.py", line 357, in _api_call
    return self._make_api_call(operation_name, kwargs)
  File "/usr/local/lib/python2.7/dist-packages/botocore/client.py", line 634, in _make_api_call
    api_params, operation_model, context=request_context)
  File "/usr/local/lib/python2.7/dist-packages/botocore/client.py", line 682, in _convert_to_request_dict
    api_params, operation_model)
  File "/usr/local/lib/python2.7/dist-packages/botocore/validate.py", line 297, in serialize_to_request
    raise ParamValidationError(report=report.generate_report())
ParamValidationError: Parameter validation failed:
Invalid type for parameter Tags, value: {u'Value': u'myfsname', u'Key': u'Name'}, type: <type 'dict'>, valid types: <type 'list'>, <type 'tuple'>
Traceback (most recent call last):
  File "/usr/bin/salt-call", line 11, in <module>
    salt_call()
  File "/usr/lib/python2.7/dist-packages/salt/scripts.py", line 431, in salt_call
    client.run()
  File "/usr/lib/python2.7/dist-packages/salt/cli/call.py", line 57, in run
    caller.run()
  File "/usr/lib/python2.7/dist-packages/salt/cli/caller.py", line 138, in run
    ret = self.call()
  File "/usr/lib/python2.7/dist-packages/salt/cli/caller.py", line 237, in call
    ret['return'] = self.minion.executors[fname](self.opts, data, func, args, kwargs)
  File "/usr/lib/python2.7/dist-packages/salt/executors/direct_call.py", line 12, in execute
    return func(*args, **kwargs)
  File "/usr/lib/python2.7/dist-packages/salt/modules/boto_efs.py", line 167, in create_file_system
    client.create_tags(FileSystemId=response['FileSystemId'], Tags=tags)
  File "/usr/local/lib/python2.7/dist-packages/botocore/client.py", line 357, in _api_call
    return self._make_api_call(operation_name, kwargs)
  File "/usr/local/lib/python2.7/dist-packages/botocore/client.py", line 634, in _make_api_call
    api_params, operation_model, context=request_context)
  File "/usr/local/lib/python2.7/dist-packages/botocore/client.py", line 682, in _convert_to_request_dict
    api_params, operation_model)
  File "/usr/local/lib/python2.7/dist-packages/botocore/validate.py", line 297, in serialize_to_request
    raise ParamValidationError(report=report.generate_report())
botocore.exceptions.ParamValidationError: Parameter validation failed:
Invalid type for parameter Tags, value: {u'Value': u'myfsname', u'Key': u'Name'}, type: <type 'dict'>, valid types: <type 'list'>, <type 'tuple'>

Setup

/srv/pillar/aws_key.sls:
my_profile:
  keyid: 'XXXXXXXXXXXXXXXXXXXX'
  key: 'xxxxxxxxixxxxxxxxxxxxxxxxxxxxxxxxxxxxxx'
  region: eu-west-1

The /srv/pillar/top.sls includes this file for '*' and it works fine with all my boto state recipes.

Steps to Reproduce Issue

Debian 9 with salt installed using bootstrap method.
Python boto modules installed using pip.

Versions Report

# salt --versions
Salt Version:
           Salt: 2019.2.0
 
Dependency Versions:
           cffi: Not Installed
       cherrypy: Not Installed
       dateutil: 2.8.0
      docker-py: Not Installed
          gitdb: 2.0.0
      gitpython: 2.1.1
          ioflo: Not Installed
         Jinja2: 2.9.4
        libgit2: Not Installed
        libnacl: Not Installed
       M2Crypto: Not Installed
           Mako: Not Installed
   msgpack-pure: Not Installed
 msgpack-python: 0.4.8
   mysql-python: Not Installed
      pycparser: Not Installed
       pycrypto: 2.6.1
   pycryptodome: Not Installed
         pygit2: Not Installed
         Python: 2.7.13 (default, Sep 26 2018, 18:42:22)
   python-gnupg: Not Installed
         PyYAML: 3.12
          PyZMQ: 16.0.2
           RAET: Not Installed
          smmap: 2.0.1
        timelib: Not Installed
        Tornado: 4.4.3
            ZMQ: 4.2.1
 
System Versions:
           dist: debian 9.9 
         locale: UTF-8
        machine: x86_64
        release: 4.9.0-3-amd64
         system: Linux
        version: debian 9.9 

Boto versions:

# pip freeze | grep boto
boto==2.49.0
boto3==1.9.183
botocore==1.12.183

Start in salt/modules/boto_efs.py, especially create_tags and create_file_system around the reported line 167, and compare the tag value passed to the AWS EFS client with the validation error. Reproduce the two reported salt-call commands, then verify that tag creation completes without a validation error and that the filesystem receives the requested Name tag.