[Bug] Topic creation encountered an excepiton by initialize topic policies service

### Search before reporting

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

### Read release policy

- [x] I understand that [unsupported versions](https://pulsar.apache.org/contribute/release-policy/#supported-versions) don't get bug fixes. I will attempt to reproduce the issue on a supported version of Pulsar client and Pulsar broker.

### User environment

3.0.6

### Issue Description

1. create 50 partitions topic
2. get stats but response error: "Internal topics have not been generated yet"
4. when list topics all the partition topics exists
5. when produce but response error: "can not create topic due to failure of initialization of policies ..., no Such ledger exists on Metadata Server - ledger=54, operation=Failed to open ledger"
6. 
7. delete this topic and create a same name 51 partitions topic, can only get the xxx-partition-50's stats
8. only this topic has the problem, and Deleting and recreating the topic still results in this issue. It appears Pulsar internally can no longer properly use this topic name.

### Error messages

```text

```

### Reproducing the issue

i don't know how to reproducing the issue!

### Additional information

_No response_

### Are you willing to submit a PR?

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

Start by reproducing the report on Pulsar 3.0.6 with 50- and 51-partition topics, checking stats and produce responses before and after deleting and recreating the topic. The issue supplies no file, test, or entry point and says reproduction is unknown; done means isolating the policy-initialization or missing-ledger cause and confirming the affected topic can be used normally.

Written by the indexing model from the issue text.