Topic-level quotas, maxproducers and maxconsumers policy - not working as expected with SSL

### Search before asking

- [X] I searched in the [issues](https://github.com/apache/pulsar/issues) and found nothing similar.

### Version

We use Pulsar version for now - `2.9.2` and Bookkkeeper - `4.14.4`
Our cluster consists of 9 brokers Pulsar and 9 bookies Bookkeeper. We use partitioned topics with 6 partitions. And our installation Pulsar <> Bookkeeper <> Zookeeper - use SSL.

### Minimal reproduce step

Enable SSL and try to set the topic level policy.

### What did you expect to see?

Topic-level quotas, maxproducers and maxconsumers policy - working as expected with SSL enabled.

### What did you see instead?

When I tried e.g. to set the quota backlog at the topic level policy or get them on our Pulsar production cluster, I got this error (for example with such a request:

`curl -L http://pulsar03:8080/admin/v2/persistent/public/default/perf_client_perf_queue_3/backlogQuotaMap`

The ERROR:
`--- An unexpected error occurred in the server ---
Message: Topic policies cache have not init.`

Stacktrace:

```
org.apache.pulsar.broker.service.BrokerServiceException$TopicPoliciesCacheNotInitException: Topic policies cache have not init.
at org.apache.pulsar.broker.service.SystemTopicBasedTopicPoliciesService.getTopicPolicies(SystemTopicBasedTopicPoliciesService.java:186)
at org.apache.pulsar.broker.service.TopicPoliciesService.lambda$getTopicPoliciesAsyncWithRetry$0(TopicPoliciesService.java:90)
at org.apache.pulsar.client.util.RetryUtil.executeWithRetry(RetryUtil.java:49)
at org.apache.pulsar.client.util.RetryUtil.lambda$executeWithRetry$1(RetryUtil.java:58)
at java.util.concurrent.Executors$RunnableAdapter.call(Executors.java:511)
at java.util.concurrent.FutureTask.run(FutureTask.java:266)
at java.util.concurrent.ScheduledThreadPoolExecutor$ScheduledFutureTask.access$201(ScheduledThreadPoolExecutor.java:180)
at java.util.concurrent.ScheduledThreadPoolExecutor$ScheduledFutureTask.run(ScheduledThreadPoolExecutor.java:293)
at java.util.concurrent.ThreadPoolExecutor.runWorker(ThreadPoolExecutor.java:1149)
at java.util.concurrent.ThreadPoolExecutor$Worker.run(ThreadPoolExecutor.java:624)
at io.netty.util.concurrent.FastThreadLocalRunnable.run(FastThreadLocalRunnable.java:30)
at java.lang.Thread.run(Thread.java:748)
```

And such an error with any policy at the topic level.
But I found such a strange pattern - **when the all partitions of a topic belong to the same broker - then the topic-level policies work as expected.**
And also - **if the partition leaders are different brokers - topic-level policies don’t work as they should** and when i set (or get) backlog quotas or retention at the topic level, an error occurs.

### Anything else?

In addition, I see this WARN in the logs when I set (or get) the topic level policies, for topics whose partitions belong to different brokers:

```
{
"@timestamp": "2022-06-02T15:40:31.041Z",
"log.level": "INFO",
"message": "New connection from /10.10.10.10:34910",
"process.thread.name": "pulsar-io-4-53",
"log.logger": "org.apache.pulsar.broker.service.ServerCnx"
}
```

```

{
"@timestamp": "2022-06-02T15:40:31.047Z",
"log.level": "WARN",
"message": "[/10.10.10.10:34910] Got exception io.netty.handler.codec.DecoderException:
javax.net.ssl.SSLHandshakeException: error:10000438:SSL routines:OPENSSL_internal:TLSV1_ALERT_INTERNAL_ERROR\n\tat
io.netty.handler.codec.ByteToMessageDecoder.callDecode(ByteToMessageDecoder.java:480)\n\tat
io.netty.handler.codec.ByteToMessageDecoder.channelRead(ByteToMessageDecoder.java:279)\n\tat
io.netty.channel.AbstractChannelHandlerContext.invokeChannelRead(AbstractChannelHandlerContext.java:379)\n\tat
io.netty.channel.AbstractChannelHandlerContext.invokeChannelRead(AbstractChannelHandlerContext.java:365)\n\tat
io.netty.channel.AbstractChannelHandlerContext.fireChannelRead(AbstractChannelHandlerContext.java:357)\n\tat
io.netty.channel.DefaultChannelPipeline$HeadContext.channelRead(DefaultChannelPipeline.java:1410)\n\tat
io.netty.channel.AbstractChannelHandlerContext.invokeChannelRead(AbstractChannelHandlerContext.java:379)\n\tat
io.netty.channel.AbstractChannelHandlerContext.invokeChannelRead(AbstractChannelHandlerContext.java:365)\n\tat
io.netty.channel.DefaultChannelPipeline.fireChannelRead(DefaultChannelPipeline.java:919)\n\tat
io.netty.channel.epoll.AbstractEpollStreamChannel$EpollStreamUnsafe.epollInReady(AbstractEpollStreamChannel.java:795)\n\tat
io.netty.channel.epoll.EpollEventLoop.processReady(EpollEventLoop.java:480)\n\tat
io.netty.channel.epoll.EpollEventLoop.run(EpollEventLoop.java:378)\n\tat
io.netty.util.concurrent.SingleThreadEventExecutor$4.run(SingleThreadEventExecutor.java:986)\n\tat
io.netty.util.internal.ThreadExecutorMap$2.run(ThreadExecutorMap.java:74)\n\tat
io.netty.util.concurrent.FastThreadLocalRunnable.run(FastThreadLocalRunnable.java:30)\n\tat java.lang.Thread.run(Thread.java:748)\n
Caused by: javax.net.ssl.SSLHandshakeException: error:10000438:SSL routines:OPENSSL_internal:TLSV1_ALERT_INTERNAL_ERROR\n\tat
io.netty.handler.ssl.ReferenceCountedOpenSslEngine.shutdownWithError(ReferenceCountedOpenSslEngine.java:1074)\n\tat
io.netty.handler.ssl.ReferenceCountedOpenSslEngine.sslReadErrorResult(ReferenceCountedOpenSslEngine.java:1365)\n\tat
io.netty.handler.ssl.ReferenceCountedOpenSslEngine.unwrap(ReferenceCountedOpenSslEngine.java:1305)\n\tat
io.netty.handler.ssl.ReferenceCountedOpenSslEngine.unwrap(ReferenceCountedOpenSslEngine.java:1392)\n\tat
io.netty.handler.ssl.ReferenceCountedOpenSslEngine.unwrap(ReferenceCountedOpenSslEngine.java:1435)\n\tat
io.netty.handler.ssl.SslHandler$SslEngineType$1.unwrap(SslHandler.java:221)\n\tat
io.netty.handler.ssl.SslHandler.unwrap(SslHandler.java:1342)\n\tat
io.netty.handler.ssl.SslHandler.decodeNonJdkCompatible(SslHandler.java:1246)\n\tat
io.netty.handler.ssl.SslHandler.decode(SslHandler.java:1286)\n\tat
io.netty.handler.codec.ByteToMessageDecoder.decodeRemovalReentryProtection(ByteToMessageDecoder.java:510)\n\tat
io.netty.handler.codec.ByteToMessageDecoder.callDecode(ByteToMessageDecoder.java:449)\n\t... 15 more\n",
"process.thread.name": "pulsar-io-4-53",
"log.logger": "org.apache.pulsar.broker.service.ServerCnx"
}

```
Our SSL settings configured according to the documentation.

### Are you willing to submit a PR?

- [ ] I'm willing to submit a PR!