Allow operational intent to directly transition to 'Activated' state

[mickmis]

Describe the bug
The CreateOperationalIntentReference operation forces an operational intent to first be created in the 'Accepted' state before being transitioned to the 'Activated' state:

dss/pkg/scd/operational_intents_handler.go

Lines 538 to 540 in ff92704

	if ovn == "" && params.State != restapi.OperationalIntentState_Accepted {
	return nil, stacktrace.NewError("Invalid state for initial version: `%s`", params.State)
	}

It is questionable whether that should be the case or not as the standard does not seem to explicitly forbid this from being done.
This question can also probably be raised about the 'Nonconforming' and 'Contigent' states.

Additional context
It is relevant to note that currently some cases of some scenarios of the USS qualifier do rely on the fact that this operation is possible.
This issue has been discussed at the 2025-11-04 InterUSS weekly meeting.