Closes #35623 

Previously if a base keymap had a `null` set to an action, leading to a
`NoAction` being assigned to the keymap, if a user wanted to take
advantage of that keymap (in this particular case, `cmd-2`), the keymap
binding check would favor the `NoAction` over the user, since
technically the context depth matched better. Instead, we should always
prefer the user's settings over whatever base or default.

Release Notes:

- Fixed keymap precedence by favoring user settings over base keymap /
configs.