[BUG] policy and policy fragment dependency and api specification issues

Start by reproducing both failures on v7.0.0-beta.1.0.0, comparing the policy and policy-fragment publish order and the API deployment with v6.0.2. Trace the publisher paths responsible for dependency handling and specification deployment. Done means dependent policy fragments publish before policies and the API shows its operations in the Azure portal.

Release version

v7.0.0-beta.1.0.0

Describe the bug

There are two bugs found when testing v7.0.0-beta.1.0.0:

• When publishing policies and policy fragments, the publisher will fail to publish the policy because it has include-fragment dependencies to the policy fragments, the ordering seems to be an issue here when in reality it should have created all the dependent policy fragments before creating the policy
• When publishing an api with a working specification.yaml, the publisher succeeds but does not actually deploy the operations, resulting in no operations when viewing the api in the azure portal. This is verified working for v6.0.2

Expected behavior

• When publishing policies and policy fragments, the publisher should succeed and take into the account of the ordering and dependency of policy fragments and policies
• When publishing an api with a working specification.yaml, the publisher should succeed and deploy the operations, the results should show a list of operations when viewing the api in the azure portal

Actual behavior

• When publishing policies and policy fragments, the publisher will fail to publish the policy because it has include-fragment dependencies to the policy fragments, the ordering seems to be an issue here when in reality it should have created all the dependent policy fragments before creating the policy
• When publishing an api with a working specification.yaml, the publisher succeeds but does not actually deploy the operations, resulting in no operations when viewing the api in the azure portal. This is verified working for v6.0.2

Reproduction Steps

• When publishing policies and policy fragments, the publisher will fail to publish the policy because it has include-fragment dependencies to the policy fragments, the ordering seems to be an issue here when in reality it should have created all the dependent policy fragments before creating the policy
• When publishing an api with a working specification.yaml, the publisher succeeds but does not actually deploy the operations, resulting in no operations when viewing the api in the azure portal. This is verified working for v6.0.2