ofp-actions: enforce valid range for table_id in goto_table instruction

Found a bug that OVS allows goto_table_id to be smaller than (or equal to)
the current table id where the flow resides. It potentially creates an
infinite loop when composing actions for a packet. To fix it, we just let
OVS returns an error message to prevent such flow to be programmed.

Signed-off-by: Jing Ai <jinga@google.com>
Signed-off-by: Ben Pfaff <blp@nicira.com>