annotations: package level scope should carry over across files

[anderseknert]

policy1.rego

# METADATA
# scope: package
# description: this is the policy.foo package!
package policy.foo

policy2.rego

package policy.foo

baz := rego.metadata.chain()

❯ opa eval -f pretty -d . data.policy.foo
{
  "baz": [
    {
      "path": [
        "policy",
        "foo",
        "baz"
      ]
    }
  ]
}

Expected Behavior

The package level annotation provided in policy1.rego should be picked up by rego.metadata.chain() in policy2.rego

Actual Behavior

It doesn't.

Other Notes

The subpackages scope does work as expected here.