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

### 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`