[WIP] Support a release controller for layered operators

[JoelSpeed]

This PR adds a new Layered mode for the release controller and teaches the release-payload-controller how to handle a ReleasePayload that doesn't need any build or mirror step.

Important things:

• The release controller now does not put a release creation or release mirroring config in place
  • This is the signal to the release payload controller that no build needs to happen
  • This seemed like a clean way to handle the hand-off between the two components, but open to something explicit
• In the release payload controller, the payload creation controller adds a status for the job creation result
  • This bit is slightly hacky? It causes the job creation result controller to short-circuit, but perhaps we want to add logic directly to that controller instead to handle this case
  • We could avoid having to set this status at all if we taught the payload accepted controller how to understand that no payload creation job exists, not sure which is a better architectural decision here

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This pull-request has been approved by: JoelSpeed
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