New configuration Coordinator configuration parameter `ForgeOncePerSlotIfTxs`:
ForgeOncePerSlotIfTxs will make the coordinator forge at most one batch per
slot, only if there are included txs in that batch, or pending l1UserTxs in the
smart contract.  Setting this parameter overrides `ForgeDelay`,
`ForgeNoTxsDelay`, `MustForgeAtSlotDeadline` and `IgnoreSlotCommitment`.

Also restructure a bit the functions that check policies to decide whether or
not to forge a batch.