Custom base policy for OutputCache not triggered when API is called

### Is there an existing issue for this?

- [X] I have searched the existing issues

### Describe the bug

I think this is the same issue as #45564.

When attempting to use a custom base policy for the OutputCache, the policy is not triggered or used when the API is called. Instead, a named policy must be created for caching to work correctly.

### Expected Behavior

The custom base policy should be triggered and used when making requests to the API.

### Steps To Reproduce

Add the custom policy to program.cs

```csharp
builder.Services.AddOutputCache(options =>
{
options.AddBasePolicy(builder => builder.AddPolicy(), true); //Doesn't work
options.AddBasePolicy(builder => builder.AddPolicy()); //Doesn't work
options.AddPolicy("PolicyA", builder => builder.AddPolicy(), true); //Works
});
```

The app builder:

```csharp
var app = builder.Build();

app.UseDeveloperExceptionPage();

app.UseCors();

app.UseAuthentication();
app.UseAuthorization();

//This needs to be after Swagger, Middlewares and Authentication
app.UseOutputCache();

// app.MapControllers().CacheOutput().RequireAuthorization(); //Relying on the custom base policy doesn't work
app.MapControllers().CacheOutput("PolicyA").RequireAuthorization();

app.Run();
```

This is the CustomBasePolicy I used to test:

```csharp
public class CustomBasePolicy : IOutputCachePolicy
{
public ValueTask CacheRequestAsync(OutputCacheContext context, CancellationToken cancellation)
{
// always cache
context.EnableOutputCaching = true;
context.AllowCacheLookup = true;
context.AllowCacheStorage = true;
context.AllowLocking = true;

// Vary by any query by default
context.CacheVaryByRules.QueryKeys = "*";

return ValueTask.CompletedTask;
}

public ValueTask ServeFromCacheAsync(OutputCacheContext context, CancellationToken cancellation) => ValueTask.CompletedTask;
public ValueTask ServeResponseAsync(OutputCacheContext context, CancellationToken cancellation) => ValueTask.CompletedTask;
}
```

### Exceptions (if any)

_No response_

### .NET Version

7.0.200

### Anything else?

I tried to enable debug logs in my project and tried to look for specific logs that I found in the [OutputCacheMiddleware](https://github.com/dotnet/aspnetcore/blob/5d10dceeaf5d1d4ac945356f580cce5cf0486c40/src/Middleware/OutputCaching/src/OutputCacheMiddleware.cs#L228), however it never looks like the middleware was hit when I tried to use the base policy.

dotnet --info

```
.NET SDK:
Version: 7.0.200
Commit: 534117727b

Runtime Environment:
OS Name: Windows
OS Version: 10.0.22621
OS Platform: Windows
RID: win10-x64
Base Path: C:\Program Files\dotnet\sdk\7.0.200\

Host:
Version: 7.0.3
Architecture: x64
Commit: 0a2bda10e8

.NET SDKs installed:
7.0.103 [C:\Program Files\dotnet\sdk]
7.0.200 [C:\Program Files\dotnet\sdk]

.NET runtimes installed:
Microsoft.AspNetCore.App 6.0.14 [C:\Program Files\dotnet\shared\Microsoft.AspNetCore.App]
Microsoft.AspNetCore.App 7.0.3 [C:\Program Files\dotnet\shared\Microsoft.AspNetCore.App]
Microsoft.NETCore.App 6.0.14 [C:\Program Files\dotnet\shared\Microsoft.NETCore.App]
Microsoft.NETCore.App 7.0.3 [C:\Program Files\dotnet\shared\Microsoft.NETCore.App]
Microsoft.WindowsDesktop.App 6.0.14 [C:\Program Files\dotnet\shared\Microsoft.WindowsDesktop.App]
Microsoft.WindowsDesktop.App 7.0.3 [C:\Program Files\dotnet\shared\Microsoft.WindowsDesktop.App]

Environment variables:
Not set

global.json file:
Not found
```