Can an Android phone with no SIM card make an emergency call?

This is actually independent of whether a mobile phone is Android.

In the United States, the FCC requires wireless service providers to provide 911 service to all phones, regardless of whether they currently have paid service or not.

The FCC's basic 911 rules require wireless service providers to transmit all 911 calls to a PSAP, regardless of whether the caller subscribes to the provider's service or not.

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If your wireless phone is not "initialized" (meaning you do not have a contract for service with a wireless service provider), and your emergency call gets disconnected, you must call the emergency operator back because the operator does not have your telephone number and cannot contact you.