Policy to permissions test is failing

## Bug report

**Required Info:**

- Operating System:
  - Ubuntu 18.04 LTS
- Installation type:
  - From source
- Version or commit hash:
  - `master` @ dace0b589aee6f97effcffcbf9508866ebf4e356
- DDS implementation:
  - Fast-RTPS
#### Steps to reproduce issue


```
colcon test --event-handlers=console_direct+ --packages-select sros2 --pytest-args ' -k policy_to_permissions' ' -vv'
```

#### Expected behavior

Test passes.

#### Actual behavior

<details>
 <summary>Test fails</summary>
```sh
__________________________ test_policy_to_permissions __________________________
test/test_policy_to_permissions.py:57: in test_policy_to_permissions
    assert actual == expected
E   assert '<dds xmlns:x...ns>\n</dds>\n' == '<dds>\n  <per...ns>\n</dds>\n'
E     - <dds xmlns:xsi="http://www.w3.org/2001/XMLSchema-instance" xsi:noNamespaceSchemaLocation="http://www.omg.org/spec/DDS-SECURITY/20170901/omg_shared_ca_permissions.xsd">
E     + <dds>
E         <permissions>
E           <grant name="/talker">
E             <subject_name>CN=/talker</subject_name>
E             <validity>
E               <not_before>2013-10-26T00:00:00</not_before>
E               <not_after>2023-10-26T22:45:30</not_after>
E             </validity>
E             <allow_rule>
E               <domains>
E                 <id>0</id>
E               </domains>
E               <publish>
E                 <topics>
E                   <topic>rq/talker/describe_parametersRequest</topic>
E                   <topic>rq/talker/get_parameter_typesRequest</topic>
E                   <topic>rq/talker/get_parametersRequest</topic>
E                   <topic>rq/talker/list_parametersRequest</topic>
E                   <topic>rq/talker/set_parametersRequest</topic>
E                   <topic>rq/talker/set_parameters_atomicallyRequest</topic>
E                   <topic>rr/talker/describe_parametersReply</topic>
E                   <topic>rr/talker/get_parameter_typesReply</topic>
E                   <topic>rr/talker/get_parametersReply</topic>
E                   <topic>rr/talker/list_parametersReply</topic>
E                   <topic>rr/talker/set_parametersReply</topic>
E                   <topic>rr/talker/set_parameters_atomicallyReply</topic>
E                   <topic>rt/chatter</topic>
E                   <topic>rt/parameter_events</topic>
E                   <topic>rt/rosout</topic>
E                 </topics>
E               </publish>
E               <subscribe>
E                 <topics>
E                   <topic>rq/talker/describe_parametersRequest</topic>
E                   <topic>rq/talker/get_parameter_typesRequest</topic>
E                   <topic>rq/talker/get_parametersRequest</topic>
E                   <topic>rq/talker/list_parametersRequest</topic>
E                   <topic>rq/talker/set_parametersRequest</topic>
E                   <topic>rq/talker/set_parameters_atomicallyRequest</topic>
E                   <topic>rr/talker/describe_parametersReply</topic>
E                   <topic>rr/talker/get_parameter_typesReply</topic>
E                   <topic>rr/talker/get_parametersReply</topic>
E                   <topic>rr/talker/list_parametersReply</topic>
E                   <topic>rr/talker/set_parametersReply</topic>
E                   <topic>rr/talker/set_parameters_atomicallyReply</topic>
E                   <topic>rt/clock</topic>
E                   <topic>rt/parameter_events</topic>
E                 </topics>
E               </subscribe>
E             </allow_rule>
E             <default>DENY</default>
E           </grant>
E           <grant name="/listener">
E             <subject_name>CN=/listener</subject_name>
E             <validity>
E               <not_before>2013-10-26T00:00:00</not_before>
E               <not_after>2023-10-26T22:45:30</not_after>
E             </validity>
E             <allow_rule>
E               <domains>
E                 <id>0</id>
E               </domains>
E               <publish>
E                 <topics>
E                   <topic>rq/listener/describe_parametersRequest</topic>
E                   <topic>rq/listener/get_parameter_typesRequest</topic>
E                   <topic>rq/listener/get_parametersRequest</topic>
E                   <topic>rq/listener/list_parametersRequest</topic>
E                   <topic>rq/listener/set_parametersRequest</topic>
E                   <topic>rq/listener/set_parameters_atomicallyRequest</topic>
E                   <topic>rr/listener/describe_parametersReply</topic>
E                   <topic>rr/listener/get_parameter_typesReply</topic>
E                   <topic>rr/listener/get_parametersReply</topic>
E                   <topic>rr/listener/list_parametersReply</topic>
E                   <topic>rr/listener/set_parametersReply</topic>
E                   <topic>rr/listener/set_parameters_atomicallyReply</topic>
E                   <topic>rt/parameter_events</topic>
E                   <topic>rt/rosout</topic>
E                 </topics>
E               </publish>
E               <subscribe>
E                 <topics>
E                   <topic>rq/listener/describe_parametersRequest</topic>
E                   <topic>rq/listener/get_parameter_typesRequest</topic>
E                   <topic>rq/listener/get_parametersRequest</topic>
E                   <topic>rq/listener/list_parametersRequest</topic>
E                   <topic>rq/listener/set_parametersRequest</topic>
E                   <topic>rq/listener/set_parameters_atomicallyRequest</topic>
E                   <topic>rr/listener/describe_parametersReply</topic>
E                   <topic>rr/listener/get_parameter_typesReply</topic>
E                   <topic>rr/listener/get_parametersReply</topic>
E                   <topic>rr/listener/list_parametersReply</topic>
E                   <topic>rr/listener/set_parametersReply</topic>
E                   <topic>rr/listener/set_parameters_atomicallyReply</topic>
E                   <topic>rt/chatter</topic>
E                   <topic>rt/clock</topic>
E                   <topic>rt/parameter_events</topic>
E                 </topics>
E               </subscribe>
E             </allow_rule>
E             <default>DENY</default>
E           </grant>
E           <grant name="/add_two_ints_server">
E             <subject_name>CN=/add_two_ints_server</subject_name>
E             <validity>
E               <not_before>2013-10-26T00:00:00</not_before>
E               <not_after>2023-10-26T22:45:30</not_after>
E             </validity>
E             <allow_rule>
E               <domains>
E                 <id>0</id>
E               </domains>
E               <publish>
E                 <topics>
E                   <topic>rq/add_two_ints_server/describe_parametersRequest</topic>
E                   <topic>rq/add_two_ints_server/get_parameter_typesRequest</topic>
E                   <topic>rq/add_two_ints_server/get_parametersRequest</topic>
E                   <topic>rq/add_two_ints_server/list_parametersRequest</topic>
E                   <topic>rq/add_two_ints_server/set_parametersRequest</topic>
E                   <topic>rq/add_two_ints_server/set_parameters_atomicallyRequest</topic>
E                   <topic>rr/add_two_intsReply</topic>
E                   <topic>rr/add_two_ints_server/describe_parametersReply</topic>
E                   <topic>rr/add_two_ints_server/get_parameter_typesReply</topic>
E                   <topic>rr/add_two_ints_server/get_parametersReply</topic>
E                   <topic>rr/add_two_ints_server/list_parametersReply</topic>
E                   <topic>rr/add_two_ints_server/set_parametersReply</topic>
E                   <topic>rr/add_two_ints_server/set_parameters_atomicallyReply</topic>
E                   <topic>rt/parameter_events</topic>
E                   <topic>rt/rosout</topic>
E                 </topics>
E               </publish>
E               <subscribe>
E                 <topics>
E                   <topic>rq/add_two_intsRequest</topic>
E                   <topic>rq/add_two_ints_server/describe_parametersRequest</topic>
E                   <topic>rq/add_two_ints_server/get_parameter_typesRequest</topic>
E                   <topic>rq/add_two_ints_server/get_parametersRequest</topic>
E                   <topic>rq/add_two_ints_server/list_parametersRequest</topic>
E                   <topic>rq/add_two_ints_server/set_parametersRequest</topic>
E                   <topic>rq/add_two_ints_server/set_parameters_atomicallyRequest</topic>
E                   <topic>rr/add_two_ints_server/describe_parametersReply</topic>
E                   <topic>rr/add_two_ints_server/get_parameter_typesReply</topic>
E                   <topic>rr/add_two_ints_server/get_parametersReply</topic>
E                   <topic>rr/add_two_ints_server/list_parametersReply</topic>
E                   <topic>rr/add_two_ints_server/set_parametersReply</topic>
E                   <topic>rr/add_two_ints_server/set_parameters_atomicallyReply</topic>
E                   <topic>rt/clock</topic>
E                   <topic>rt/parameter_events</topic>
E                 </topics>
E               </subscribe>
E             </allow_rule>
E             <default>DENY</default>
E           </grant>
E           <grant name="/add_two_ints_client">
E             <subject_name>CN=/add_two_ints_client</subject_name>
E             <validity>
E               <not_before>2013-10-26T00:00:00</not_before>
E               <not_after>2023-10-26T22:45:30</not_after>
E             </validity>
E             <allow_rule>
E               <domains>
E                 <id>0</id>
E               </domains>
E               <publish>
E                 <topics>
E                   <topic>rq/add_two_intsRequest</topic>
E                   <topic>rq/add_two_ints_client/describe_parametersRequest</topic>
E                   <topic>rq/add_two_ints_client/get_parameter_typesRequest</topic>
E                   <topic>rq/add_two_ints_client/get_parametersRequest</topic>
E                   <topic>rq/add_two_ints_client/list_parametersRequest</topic>
E                   <topic>rq/add_two_ints_client/set_parametersRequest</topic>
E                   <topic>rq/add_two_ints_client/set_parameters_atomicallyRequest</topic>
E                   <topic>rr/add_two_ints_client/describe_parametersReply</topic>
E                   <topic>rr/add_two_ints_client/get_parameter_typesReply</topic>
E                   <topic>rr/add_two_ints_client/get_parametersReply</topic>
E                   <topic>rr/add_two_ints_client/list_parametersReply</topic>
E                   <topic>rr/add_two_ints_client/set_parametersReply</topic>
E                   <topic>rr/add_two_ints_client/set_parameters_atomicallyReply</topic>
E                   <topic>rt/parameter_events</topic>
E                   <topic>rt/rosout</topic>
E                 </topics>
E               </publish>
E               <subscribe>
E                 <topics>
E                   <topic>rq/add_two_ints_client/describe_parametersRequest</topic>
E                   <topic>rq/add_two_ints_client/get_parameter_typesRequest</topic>
E                   <topic>rq/add_two_ints_client/get_parametersRequest</topic>
E                   <topic>rq/add_two_ints_client/list_parametersRequest</topic>
E                   <topic>rq/add_two_ints_client/set_parametersRequest</topic>
E                   <topic>rq/add_two_ints_client/set_parameters_atomicallyRequest</topic>
E                   <topic>rr/add_two_intsReply</topic>
E                   <topic>rr/add_two_ints_client/describe_parametersReply</topic>
E                   <topic>rr/add_two_ints_client/get_parameter_typesReply</topic>
E                   <topic>rr/add_two_ints_client/get_parametersReply</topic>
E                   <topic>rr/add_two_ints_client/list_parametersReply</topic>
E                   <topic>rr/add_two_ints_client/set_parametersReply</topic>
E                   <topic>rr/add_two_ints_client/set_parameters_atomicallyReply</topic>
E                   <topic>rt/clock</topic>
E                   <topic>rt/parameter_events</topic>
E                 </topics>
E               </subscribe>
E             </allow_rule>
E             <default>DENY</default>
E           </grant>
E           <grant name="/minimal_action_server">
E             <subject_name>CN=/minimal_action_server</subject_name>
E             <validity>
E               <not_before>2013-10-26T00:00:00</not_before>
E               <not_after>2023-10-26T22:45:30</not_after>
E             </validity>
E             <allow_rule>
E               <domains>
E                 <id>0</id>
E               </domains>
E               <publish>
E                 <topics>
E                   <topic>rq/minimal_action_server/describe_parametersRequest</topic>
E                   <topic>rq/minimal_action_server/get_parameter_typesRequest</topic>
E                   <topic>rq/minimal_action_server/get_parametersRequest</topic>
E                   <topic>rq/minimal_action_server/list_parametersRequest</topic>
E                   <topic>rq/minimal_action_server/set_parametersRequest</topic>
E                   <topic>rq/minimal_action_server/set_parameters_atomicallyRequest</topic>
E                   <topic>rr/fibonacci/_action/cancel_goalReply</topic>
E                   <topic>rr/fibonacci/_action/get_resultReply</topic>
E                   <topic>rr/fibonacci/_action/send_goalReply</topic>
E                   <topic>rt/fibonacci/_action/feedback</topic>
E                   <topic>rt/fibonacci/_action/status</topic>
E                   <topic>rr/minimal_action_server/describe_parametersReply</topic>
E                   <topic>rr/minimal_action_server/get_parameter_typesReply</topic>
E                   <topic>rr/minimal_action_server/get_parametersReply</topic>
E                   <topic>rr/minimal_action_server/list_parametersReply</topic>
E                   <topic>rr/minimal_action_server/set_parametersReply</topic>
E                   <topic>rr/minimal_action_server/set_parameters_atomicallyReply</topic>
E                   <topic>rt/parameter_events</topic>
E                   <topic>rt/rosout</topic>
E                 </topics>
E               </publish>
E               <subscribe>
E                 <topics>
E                   <topic>rq/fibonacci/_action/cancel_goalRequest</topic>
E                   <topic>rq/fibonacci/_action/get_resultRequest</topic>
E                   <topic>rq/fibonacci/_action/send_goalRequest</topic>
E                   <topic>rq/minimal_action_server/describe_parametersRequest</topic>
E                   <topic>rq/minimal_action_server/get_parameter_typesRequest</topic>
E                   <topic>rq/minimal_action_server/get_parametersRequest</topic>
E                   <topic>rq/minimal_action_server/list_parametersRequest</topic>
E                   <topic>rq/minimal_action_server/set_parametersRequest</topic>
E                   <topic>rq/minimal_action_server/set_parameters_atomicallyRequest</topic>
E                   <topic>rr/minimal_action_server/describe_parametersReply</topic>
E                   <topic>rr/minimal_action_server/get_parameter_typesReply</topic>
E                   <topic>rr/minimal_action_server/get_parametersReply</topic>
E                   <topic>rr/minimal_action_server/list_parametersReply</topic>
E                   <topic>rr/minimal_action_server/set_parametersReply</topic>
E                   <topic>rr/minimal_action_server/set_parameters_atomicallyReply</topic>
E                   <topic>rt/clock</topic>
E                   <topic>rt/parameter_events</topic>
E                 </topics>
E               </subscribe>
E             </allow_rule>
E             <default>DENY</default>
E           </grant>
E           <grant name="/minimal_action_client">
E             <subject_name>CN=/minimal_action_client</subject_name>
E             <validity>
E               <not_before>2013-10-26T00:00:00</not_before>
E               <not_after>2023-10-26T22:45:30</not_after>
E             </validity>
E             <allow_rule>
E               <domains>
E                 <id>0</id>
E               </domains>
E               <publish>
E                 <topics>
E                   <topic>rq/fibonacci/_action/cancel_goalRequest</topic>
E                   <topic>rq/fibonacci/_action/get_resultRequest</topic>
E                   <topic>rq/fibonacci/_action/send_goalRequest</topic>
E                   <topic>rq/minimal_action_client/describe_parametersRequest</topic>
E                   <topic>rq/minimal_action_client/get_parameter_typesRequest</topic>
E                   <topic>rq/minimal_action_client/get_parametersRequest</topic>
E                   <topic>rq/minimal_action_client/list_parametersRequest</topic>
E                   <topic>rq/minimal_action_client/set_parametersRequest</topic>
E                   <topic>rq/minimal_action_client/set_parameters_atomicallyRequest</topic>
E                   <topic>rr/minimal_action_client/describe_parametersReply</topic>
E                   <topic>rr/minimal_action_client/get_parameter_typesReply</topic>
E                   <topic>rr/minimal_action_client/get_parametersReply</topic>
E                   <topic>rr/minimal_action_client/list_parametersReply</topic>
E                   <topic>rr/minimal_action_client/set_parametersReply</topic>
E                   <topic>rr/minimal_action_client/set_parameters_atomicallyReply</topic>
E                   <topic>rt/parameter_events</topic>
E                   <topic>rt/rosout</topic>
E                 </topics>
E               </publish>
E               <subscribe>
E                 <topics>
E                   <topic>rq/minimal_action_client/describe_parametersRequest</topic>
E                   <topic>rq/minimal_action_client/get_parameter_typesRequest</topic>
E                   <topic>rq/minimal_action_client/get_parametersRequest</topic>
E                   <topic>rq/minimal_action_client/list_parametersRequest</topic>
E                   <topic>rq/minimal_action_client/set_parametersRequest</topic>
E                   <topic>rq/minimal_action_client/set_parameters_atomicallyRequest</topic>
E                   <topic>rr/fibonacci/_action/cancel_goalReply</topic>
E                   <topic>rr/fibonacci/_action/get_resultReply</topic>
E                   <topic>rr/fibonacci/_action/send_goalReply</topic>
E                   <topic>rt/fibonacci/_action/feedback</topic>
E                   <topic>rt/fibonacci/_action/status</topic>
E                   <topic>rr/minimal_action_client/describe_parametersReply</topic>
E                   <topic>rr/minimal_action_client/get_parameter_typesReply</topic>
E                   <topic>rr/minimal_action_client/get_parametersReply</topic>
E                   <topic>rr/minimal_action_client/list_parametersReply</topic>
E                   <topic>rr/minimal_action_client/set_parametersReply</topic>
E                   <topic>rr/minimal_action_client/set_parameters_atomicallyReply</topic>
E                   <topic>rt/clock</topic>
E                   <topic>rt/parameter_events</topic>
E                 </topics>
E               </subscribe>
E             </allow_rule>
E             <default>DENY</default>
E           </grant>
E           <grant name="/admin">
E             <subject_name>CN=/admin</subject_name>
E             <validity>
E               <not_before>2013-10-26T00:00:00</not_before>
E               <not_after>2023-10-26T22:45:30</not_after>
E             </validity>
E             <allow_rule>
E               <domains>
E                 <id>0</id>
E               </domains>
E               <publish>
E                 <topics>
E                   <topic>rq/add_two_intsRequest</topic>
E                   <topic>rq/admin/describe_parametersRequest</topic>
E                   <topic>rq/admin/get_parameter_typesRequest</topic>
E                   <topic>rq/admin/get_parametersRequest</topic>
E                   <topic>rq/admin/list_parametersRequest</topic>
E                   <topic>rq/admin/set_parametersRequest</topic>
E                   <topic>rq/admin/set_parameters_atomicallyRequest</topic>
E                   <topic>rq/fibonacci/_action/cancel_goalRequest</topic>
E                   <topic>rq/fibonacci/_action/get_resultRequest</topic>
E                   <topic>rq/fibonacci/_action/send_goalRequest</topic>
E                   <topic>rr/add_two_intsReply</topic>
E                   <topic>rr/admin/describe_parametersReply</topic>
E                   <topic>rr/admin/get_parameter_typesReply</topic>
E                   <topic>rr/admin/get_parametersReply</topic>
E                   <topic>rr/admin/list_parametersReply</topic>
E                   <topic>rr/admin/set_parametersReply</topic>
E                   <topic>rr/admin/set_parameters_atomicallyReply</topic>
E                   <topic>rr/fibonacci/_action/cancel_goalReply</topic>
E                   <topic>rr/fibonacci/_action/get_resultReply</topic>
E                   <topic>rr/fibonacci/_action/send_goalReply</topic>
E                   <topic>rt/fibonacci/_action/feedback</topic>
E                   <topic>rt/fibonacci/_action/status</topic>
E                   <topic>rt/chatter</topic>
E                   <topic>rt/parameter_events</topic>
E                   <topic>rt/rosout</topic>
E                 </topics>
E               </publish>
E               <subscribe>
E                 <topics>
E                   <topic>rq/add_two_intsRequest</topic>
E                   <topic>rq/admin/describe_parametersRequest</topic>
E                   <topic>rq/admin/get_parameter_typesRequest</topic>
E                   <topic>rq/admin/get_parametersRequest</topic>
E                   <topic>rq/admin/list_parametersRequest</topic>
E                   <topic>rq/admin/set_parametersRequest</topic>
E                   <topic>rq/admin/set_parameters_atomicallyRequest</topic>
E                   <topic>rq/fibonacci/_action/cancel_goalRequest</topic>
E                   <topic>rq/fibonacci/_action/get_resultRequest</topic>
E                   <topic>rq/fibonacci/_action/send_goalRequest</topic>
E                   <topic>rr/add_two_intsReply</topic>
E                   <topic>rr/admin/describe_parametersReply</topic>
E                   <topic>rr/admin/get_parameter_typesReply</topic>
E                   <topic>rr/admin/get_parametersReply</topic>
E                   <topic>rr/admin/list_parametersReply</topic>
E                   <topic>rr/admin/set_parametersReply</topic>
E                   <topic>rr/admin/set_parameters_atomicallyReply</topic>
E                   <topic>rr/fibonacci/_action/cancel_goalReply</topic>
E                   <topic>rr/fibonacci/_action/get_resultReply</topic>
E                   <topic>rr/fibonacci/_action/send_goalReply</topic>
E                   <topic>rt/fibonacci/_action/feedback</topic>
E                   <topic>rt/fibonacci/_action/status</topic>
E                   <topic>rt/chatter</topic>
E                   <topic>rt/clock</topic>
E                   <topic>rt/parameter_events</topic>
E                 </topics>
E               </subscribe>
E             </allow_rule>
E             <default>DENY</default>
E           </grant>
E         </permissions>
E       </dds>
```
</details>

#### Additional information

Test failure can be seen in CI as well, see https://ci.ros2.org/job/ci_linux/6268/, https://ci.ros2.org/job/ci_linux-aarch64/2691/ and https://ci.ros2.org/job/ci_osx/5150/.

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Policy to permissions test is failing #87

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Policy to permissions test is failing #87

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Bug report

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