Fix metadata service steps

[bnchrch]

Problem

We use arrays to denote concurrency

e.g.

steps = [
  [1a, 1b, 1c],
  [2a, 2b, 2c],
  ]

and the orchestrator deploy steps were defined concurrently when they needed to be sequential.

Solution

1. Update to use the array
2. Throw a better error message
3. Add tests
4. Open discussion on if we should use something more explicit than an array structure

[vercel]

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Name	Status	Preview	Comments	Updated (UTC)
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