applying a plan should use the refreshed state #15421
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When applying a plan, a copy of the plan's state is initially persisted
to state storage, which may in turn increment the serial number. The
apply operation stil uses the state stored in the plan, which may have a
lower serial number.
Now we no longer use the plan state when building the apply context, but
still perform a sanity check to ensure that the state be used is
equivalent.
TODO: test case