[BUG] states.rabbitmq_policy.present - specifying apply_to shows change on every highstate

Description
Specifying apply_to parameter in states.rabbitmq_policy.present causes highstate to show change on every highstate.
Removing apply_to argument resolves the issue.

----------
          ID: rabbitmq-policy-test
    Function: rabbitmq_policy.present
        Name: test-policy
      Result: True
     Comment: Setting policy "test-policy" for pattern "TestQueue" to "{"max-length": 1000000}" with priority "0" for vhost "/" ...
     Started: 17:40:24.181276
    Duration: 1311.595 ms
     Changes:
              ----------
              new:
                  - Applyto
              old:
                  ----------
                  apply_to:
                      all
                  definition:
                      {"max-length":1000000}
                  pattern:
                      TestQueue
                  priority:
                      0

Setup

rabbitmq-policy-test:
  rabbitmq_policy.present:
    - name: test-policy
    - pattern: TestQueue
    - definition: '{"max-length": 1000000}'
    - priority: 0
    - vhost: '/'
    - apply_to: 'all'

Expected behavior
Apply the RabbitMq policy on the first highstate and then do nothing as long as the policy remains unchanged.

Versions Report
RabbitMQ server version 3.8.14-1

Salt master:

Salt Version:
          Salt: 3004.1

Dependency Versions:
          cffi: Not Installed
      cherrypy: Not Installed
      dateutil: 2.5.3
     docker-py: Not Installed
         gitdb: 2.0.0
     gitpython: 2.1.1
        Jinja2: 2.9.4
       libgit2: Not Installed
      M2Crypto: Not Installed
          Mako: Not Installed
       msgpack: 0.6.2
  msgpack-pure: Not Installed
  mysql-python: Not Installed
     pycparser: Not Installed
      pycrypto: Not Installed
  pycryptodome: 3.6.1
        pygit2: Not Installed
        Python: 3.5.3 (default, Nov  4 2021, 15:29:10)
  python-gnupg: Not Installed
        PyYAML: 3.12
         PyZMQ: 17.1.2
         smmap: 2.0.1
       timelib: Not Installed
       Tornado: 4.5.3
           ZMQ: 4.2.1

System Versions:
          dist: debian 9 stretch
        locale: UTF-8
       machine: x86_64
       release: 4.9.0-18-amd64
        system: Linux
       version: Debian GNU/Linux 9 stretch

Salt minion:

Salt Version:
          Salt: 3004.1

Dependency Versions:
          cffi: Not Installed
      cherrypy: Not Installed
      dateutil: 2.5.3
     docker-py: Not Installed
         gitdb: Not Installed
     gitpython: Not Installed
        Jinja2: 2.9.4
       libgit2: Not Installed
      M2Crypto: Not Installed
          Mako: Not Installed
       msgpack: 0.6.2
  msgpack-pure: Not Installed
  mysql-python: Not Installed
     pycparser: Not Installed
      pycrypto: Not Installed
  pycryptodome: 3.6.1
        pygit2: Not Installed
        Python: 3.5.3 (default, Nov  4 2021, 15:29:10)
  python-gnupg: Not Installed
        PyYAML: 3.12
         PyZMQ: 17.1.2
         smmap: Not Installed
       timelib: Not Installed
       Tornado: 4.5.3
           ZMQ: 4.2.1

System Versions:
          dist: debian 9 stretch
        locale: UTF-8
       machine: x86_64
       release: 4.9.0-14-amd64
        system: Linux
       version: Debian GNU/Linux 9 stretch

Start at the states.rabbitmq_policy.present entry point and reproduce the issue with the provided YAML, RabbitMQ policy, and apply_to: all setting. Trace how the existing policy is compared on successive highstates. Done means the first highstate applies the policy, while later highstates report no changes when it remains unchanged.