[Docs] Ensure breaking-changes tag exists for empty and existing breaking changes (#94911)

* Ensure breaking-changes tag exists for both cases

This was previously added so that it only worked when there were no
breaking changes, but should be for the case of breaking changes also

* Revert "Ensure breaking-changes tag exists for both cases"

This reverts commit f8cb87a.

* Ensure breaking-changes tag exists for both cases

This was previously added so that it only worked when there were no
breaking changes, but should be for the case of breaking changes also

* Improved wording

Author: craigtaverner

build-tools-internal/src/main/resources/templates/breaking-changes.asciidoc

@@ -26,6 +26,12 @@ Before upgrading to ${majorDotMinor}, review these changes and take the describe
 to mitigate the impact.
 
 <%
+    if (breakingByNotabilityByArea.getOrDefault(true, []).isEmpty()) { %>
+// tag::notable-breaking-changes[]
+There are no notable breaking changes in {es} ${majorDotMinor}.
+// end::notable-breaking-changes[]
+But there are some less critical breaking changes.
+<%  }
     [true, false].each { isNotable ->
         def breakingByArea = breakingByNotabilityByArea.getOrDefault(isNotable, [])
         if (breakingByArea.isEmpty() == false) {