onfail_in executes once function if the salt state define 2 functions

Description of Issue

The behaviour is not the same if we omit state module in requisites with onfail_in and two functions in the same state.

Setup

test-1.sls

quit_on_error:
  event.send:
    - name: custom/error/event
    - data:
      - key1: value1
  cmd.run:
    - name: bash -c 'false'
    - failhard: True

step-1:
  cmd.run:
    - name: echo OK
    - onfail_in:
      - event: quit_on_error
      - cmd: quit_on_error

test-2.sls

quit_on_error:
  event.send:
    - name: custom/error/event
    - data:
      - key1: value1
  cmd.run:
    - name: bash -c 'false'
    - failhard: True

step-1:
  cmd.run:
    - name: echo OK
    - onfail_in:
      -  quit_on_error

Steps to Reproduce Issue

$ salt minion-1 state.apply test-1.sls

minion-1:
----------
          ID: step-1
    Function: cmd.run
        Name: echo OK
      Result: True
     Comment: Command "echo OK" run
     Started: 13:55:13.014104
    Duration: 14.797 ms
     Changes:   
              ----------
              pid:
                  2891
              retcode:
                  0
              stderr:
              stdout:
                  OK
----------
          ID: quit_on_error
    Function: event.send
        Name: custom/error/event
      Result: True
     Comment: State was not run because onfail req did not change
     Started: 13:55:13.029609
    Duration: 0.016 ms
     Changes:   
----------
          ID: quit_on_error
    Function: cmd.run
        Name: bash -c 'false'
      Result: True
     Comment: State was not run because onfail req did not change
     Started: 13:55:13.029859
    Duration: 0.015 ms
     Changes:   

Summary for minion-1
------------
Succeeded: 3 (changed=1)
Failed:    0
------------
Total states run:     3
Total run time:  14.828 ms

if we omit state module in onfail_in, the quit_on_error. cmd.run function is executed event the state with onfail_in exit with success

$ salt minion-1 state.apply test-2.sls

minion-1:
----------
          ID: step-1
    Function: cmd.run
        Name: echo OK
      Result: True
     Comment: Command "echo OK" run
     Started: 13:53:52.702099
    Duration: 15.399 ms
     Changes:   
              ----------
              pid:
                  2842
              retcode:
                  0
              stderr:
              stdout:
                  OK
----------
          ID: quit_on_error
    Function: event.send
        Name: custom/error/event
      Result: True
     Comment: State was not run because onfail req did not change
     Started: 13:53:52.718150
    Duration: 0.015 ms
     Changes:   
----------
          ID: quit_on_error
    Function: cmd.run
        Name: bash -c 'false'
      Result: False
     Comment: Command "bash -c 'false'" run
     Started: 13:53:52.718262
    Duration: 13.783 ms
     Changes:   
              ----------
              pid:
                  2843
              retcode:
                  1
              stderr:
              stdout:

Summary for minion-1
------------
Succeeded: 2 (changed=2)
Failed:    1
------------
Total states run:     3
Total run time:  29.197 ms

Versions Report

Salt Version:
Salt: 2019.2.1

Dependency Versions:
cffi: Not Installed
cherrypy: unknown
dateutil: 2.8.0
docker-py: 1.10.6
gitdb: Not Installed
gitpython: Not Installed
ioflo: Not Installed
Jinja2: 2.10.3
libgit2: Not Installed
libnacl: Not Installed
M2Crypto: Not Installed
Mako: Not Installed
msgpack-pure: Not Installed
msgpack-python: 0.6.2
mysql-python: Not Installed
pycparser: Not Installed
pycrypto: 2.6.1
pycryptodome: Not Installed
pygit2: Not Installed
Python: 2.7.16 (default, May 11 2019, 02:15:00)
python-gnupg: Not Installed
PyYAML: 3.13
PyZMQ: 18.1.0
RAET: Not Installed
smmap: Not Installed
timelib: Not Installed
Tornado: 5.1.1
ZMQ: 4.3.2

System Versions:
dist:
locale: UTF-8
machine: x86_64
release: 5.1.18-200.fc29.x86_64
system: Linux
version: Not Installed

Reproduce the discrepancy with the test-1.sls and test-2.sls examples using salt minion-1 state.apply. Compare how onfail_in resolves the two functions under the quit_on_error state, and consider the issue done when both forms produce the intended, consistent result.