Policy Engine - No Policy Decision Detected, missing spinnaker.persistence.pipelines

Issue

Even though it may appear that your declarations are correct, Policy Engine can possibly return the below error when initializing.  There was an error saving your pipeline: Policy Error: No policy decision detected. This is likely because a missing spinnaker.persistence.pipelines.before package.. [dismiss]

Cause

Setting Policy Engine to failOpen: false can cause the issue if no policies are declared.When Spinnaker sends a specific payload via Policy Engine to OPA to be validated by a policy and the policy doesn't exist, it will return the error message.  By default, with this setting Front50 will fail close.