Allow data to be created regardless of a p_dev_rec existing

This will allow a new generate local oob data after a recent pairing has
happend.

Bug: 220390729
Test: gd/cert/run --clean --device --sl4a OobPairingSl4aTest
Tag: #stability
Change-Id: I61f69d53270716c23915f3195cf3848fa67930b8