Make --prev-governance-action-tx-id and --prev-governance-action-tx-id optional for create-no-confidence command

[Jimbo4350]

Changelog

- description: |
    Make `--prev-governance-action-tx-id` and `--prev-governance-action-tx-id` optional for `create-no-confidence` command
# uncomment types applicable to the change:
  type:
  - feature        # introduces a new feature
  # - breaking       # the API has changed in a breaking way
  - compatible     # the API has changed but is non-breaking
  # - optimisation   # measurable performance improvements
  # - refactoring    # QoL changes
  # - bugfix         # fixes a defect
  # - test           # fixes/modifies tests
  # - maintenance    # not directly related to the code
  # - release        # related to a new release preparation
  # - documentation  # change in code docs, haddocks...

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Checklist

• Commit sequence broadly makes sense and commits have useful messages
• New tests are added if needed and existing tests are updated. See Running tests for more details
• Self-reviewed the diff