User subset selection requires full downlink channel state information to realize effective multi-user beamforming in frequency-division duplexing (FDD) massive multi-input multi-output (MIMO) systems. However, the channel estimation overhead scales with the number of users in FDD systems. In this paper, we propose a novel propagation domain-based user selection scheme, labeled as zero-measurement selection, for FDD massive MIMO systems with the aim of reducing the channel estimation overhead that scales with the number of users. The key idea is to infer downlink user channel norm and inter-user channel correlation from uplink channel in the propagation domain. In zero-measurement selection, the base-station performs downlink user selection before any downlink channel estimation. As a result, the downlink channel estimation overhead for both user selection and beamforming is independent of the total number of users. Then, we evaluate zero-measurement selection with both measured and simulated channels. The results show that zero-measurement selection achieves up to 92.5% weighted sum rate of genie-aided user selection on the average and scales well with both the number of base-station antennas and the number of users. We also employ simulated channels for further performance validation, and the numerical results yield similar observations as the experimental findings.