Add create method that takes equivalent of OperationState with NamedAttributeList

This method is close to creating an OperationState first and then unpacking it
but avoids creating the OperationState and takes a NamedAttributeList for
attributes rather than array of NamedAttribute (to enable reusing an already
created NamedAttributeList).

Reuse this new method via create that takes OperationState. I'll update inferReturnTypes in follow up to also take NamedAttributeList and so a build method that uses both inferReturnTypes and create can reuse the same list.

PiperOrigin-RevId: 282651642