KEP-2021: Promote to beta

[johanneswuerbach]

• Promote KEP-2021 to beta.

• Issue link: Support scaling to/from zero pods for object/external metrics #2021

• Rendered version https://github.com/johanneswuerbach/enhancements/blob/kep-2021-beta/keps/sig-autoscaling/2021-scale-from-zero/README.md

[k8s-ci-robot]

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