Add logic to Ros2ControlManager to match ros2_control (backport #3332)

[mergify]

Description

The logic for the chained controllers still does not match the expectation of ROS2 control. This PR makes a few changes:

1. Activation/deactivation is expected to be disjoint. For example, if controller B is a dependency of A (A chains to B) but controller B is also a dependency of C (B chains to B), then the switch from A->B to C->B would cause B to be in both the activation and deactivate list. This causes ROS2 control to through an error and reject the switch. The simplifyControllerActivationDeactivation function adds the logic needed to avoid this from happening.
2. The valid transitions for chained controllers depend asymmetrically on whether the controller is being started or stopped. If A chained to B, then when A is started, B should be automatically started. B is allowed to be started and stopped on its own if A is not running. However, if both A and B are running, B cannot be shut down alone, both must be shut down together or A alone.
3. Lastly, ROS 2 control should not be told to shut down controllers that are not running or start controllers that are already running. Doing so can cause an error. A check is added to only start controllers that are not already running.

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This is an automatic backport of pull request #3332 done by [Mergify](https://mergify.com).

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Codecov Report

Attention: Patch coverage is 98.01980% with 2 lines in your changes missing coverage. Please review.

Project coverage is 44.41%. Comparing base (611a5a2) to head (dea0514).
Report is 1 commits behind head on jazzy.

Files with missing lines	Patch %	Lines
...ontrol_interface/src/controller_manager_plugin.cpp	94.60%	2 Missing ⚠️

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Additional details and impacted files

@@            Coverage Diff             @@
##            jazzy    #3343      +/-   ##
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- Coverage   44.52%   44.41%   -0.10%     
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  Files         700      701       +1     
  Lines       61760    61859      +99     
  Branches     7491     7494       +3     
==========================================
- Hits        27493    27471      -22     
- Misses      34100    34219     +119     
- Partials      167      169       +2     

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