Fix system topic replicate issue (apache#14605)

### Motivation
PIP 92 has introduced topic policies across clusters. But after apache#12517, if the policy is not global, it set the replicate cluster to an empty set.
```
PulsarEvent.PulsarEventBuilder builder = PulsarEvent.builder();
 if (policies == null || !policies.isGlobalPolicies()) {
     // we don't need to replicate local policies to remote cluster, so set `replicateTo` to empty.
     builder.replicateTo(new HashSet<>());
}
```
It should set the `replicateTo` with the local cluster, not an empty set.

Otherwise,  it will cause the system event to be replicated. Details are here :
https://github.com/apache/pulsar/blob/d4c2e613d305f8f785b5ef357b7cbe2ccc271043/pulsar-broker/src/main/java/org/apache/pulsar/broker/service/persistent/PersistentReplicator.java#L319-L328

pulsar-broker/src/main/java/org/apache/pulsar/broker/service/SystemTopicBasedTopicPoliciesService.java

@@ -20,6 +20,7 @@
 
 import com.google.common.annotations.VisibleForTesting;
 import com.google.common.collect.Lists;
+import com.google.common.collect.Sets;
 import java.util.HashSet;
 import java.util.List;
 import java.util.Map;
@@ -61,6 +62,8 @@
 public class SystemTopicBasedTopicPoliciesService implements TopicPoliciesService {
 
     private final PulsarService pulsarService;
+    private final HashSet localCluster;
+    private final String clusterName;
     private volatile NamespaceEventsSystemTopicFactory namespaceEventsSystemTopicFactory;
 
     @VisibleForTesting
@@ -80,6 +83,8 @@ public class SystemTopicBasedTopicPoliciesService implements TopicPoliciesServic
 
     public SystemTopicBasedTopicPoliciesService(PulsarService pulsarService) {
         this.pulsarService = pulsarService;
+        this.clusterName = pulsarService.getConfiguration().getClusterName();
+        this.localCluster = Sets.newHashSet(clusterName);
     }
 
     @Override
@@ -143,7 +148,7 @@ private PulsarEvent getPulsarEvent(TopicName topicName, ActionType actionType, T
         PulsarEvent.PulsarEventBuilder builder = PulsarEvent.builder();
         if (policies == null || !policies.isGlobalPolicies()) {
             // we don't need to replicate local policies to remote cluster, so set `replicateTo` to empty.
-            builder.replicateTo(new HashSet<>());
+            builder.replicateTo(localCluster);
         }
         return builder
                 .actionType(actionType)
@@ -454,9 +459,12 @@ private void refreshTopicPoliciesCache(Message<PulsarEvent> msg) {
         }
     }
 
-    private static boolean hasReplicateTo(Message<?> message) {
+    private boolean hasReplicateTo(Message<?> message) {
         if (message instanceof MessageImpl) {
-            return ((MessageImpl<?>) message).hasReplicateTo();
+            return ((MessageImpl<?>) message).hasReplicateTo()
+                    ? (((MessageImpl<?>) message).getReplicateTo().size() == 1
+                        ? !((MessageImpl<?>) message).getReplicateTo().contains(clusterName) : true)
+                    : false;
         }
         if (message instanceof TopicMessageImpl) {
             return hasReplicateTo(((TopicMessageImpl<?>) message).getMessage());