skaffold verify should be able to build images

### Expected behavior
I can run `skaffold verify` and it builds and/or uses prebuilt images already cached

### Actual behavior
`skaffold verify` errors out with `ErrImagePull` unless you provide `--build-artifacts`

### Information

- Skaffold version: `v2.13.2`
- Operating system: OSX 14.6.1
- Installed via: Homebrew
- Contents of skaffold.yaml:

```yaml
apiVersion: skaffold/v4beta11
kind: Config
build:
artifacts:
- image: bootstrap
docker: {}
verify:
- name: bootstrap
container:
name: bootstrap
image: bootstrap
```
Dockerfile:
```dockerfile
FROM hello-world:latest
```

### Steps to reproduce the behavior

1. a clonable repository with the sample skaffold project
2. `skaffold verify`