fix: do not fail governance actions initiated by non-governance authority

[LGLO]

Description

Scenario:

• K1 wallet has funds, but K1 is not in governance authorities
• K1 initiates some governance action and tx is created and awaiting signatures
• B and C (governance authorities) sign tx

Before:

• tx is signed by K1, B, and C, submission fails due too small fee
  After:
• tx is signed by B and C only, submission succeeds

Ref: ETCM-11903

• Commit sequence broadly makes sense and commits have useful messages.
• The size limit of 400 LOC isn't needlessly exceeded
• The PR refers to a JIRA ticket (if one exists)
• New tests are added if needed and existing tests are updated.
• New code is documented and existing documentation is updated.
• Relevant logging and metrics added
• Any changes are noted in the changelog.md for affected crate
• Self-reviewed the diff