Backport of [NET-8412] Fix APIGW policy creation ordering for upgrade path into release/1.2.x

[hc-github-team-consul-core]

Backport

This PR is auto-generated from #3918 to be assessed for backporting due to the inclusion of the label backport/1.2.x.

🚨

Warning automatic cherry-pick of commits failed. If the first commit failed,
you will see a blank no-op commit below. If at least one commit succeeded, you
will see the cherry-picked commits up to, not including, the commit where
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The person who merged in the original PR is:
@jm96441n
This person should manually cherry-pick the original PR into a new backport PR,
and close this one when the manual backport PR is merged in.

merge conflict error: unable to process merge commit: "4e5efd82e2cc8f4ebb100080b083d8d293e4bb2e", automatic backport requires rebase workflow

The below text is copied from the body of the original PR.

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Changes proposed in this PR

• this was fixed for fresh installs with [NET-8412] Fix order of APIGW ACL policy/role creation #3779 but upgrades still had issues due to the cache of policies being empty

How I've tested this PR

Using the files here: https://gist.github.com/jm96441n/2150bc604beb9a64cd1178a2b005f2da

1. checkout this branch and run make docker-dev to generate the image with these changes
2. from the gist above run start.sh this will set up your kind cluster and run consul (ensure you have the CONSUL_LICENSE env var set)
3. view the logs of consul server after this starts kubectl logs -n consul consul-server-0 to see the logs with:

[ERROR] agent.http: Request error: method=PUT url=/v1/acl/policy?dc=dc1 from=10.244.1.7:54708 error="Invalid Policy: A Policy with Name \"api-gateway-token-policy\" already exists"

1. in consul_values file comment out line 3 (the line specifying to use consul-k8s 1.3.3) and uncomment line 4 (the line specifying to use consul-k8s local version we built earlier)
2. run consul-k8s upgrade -config-file=./consul/consul_values.yaml -auto-approve (or helm upgrade, your choice)
3. once that completes view the logs of consul server to see not see the gateway token policy errors kubectl logs -n consul consul-server-0

How I expect reviewers to test this PR

Checklist

• Tests added
• CHANGELOG entry added

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Overview of commits

• 09cc033 - 4e5efd8 - c7de1f7