After the changes of ISPN-12265, user caches do not operate while missing members after a graceful shutdown. Any operations would fail, indicating to the user the cluster is missing members from the previous topology before the shutdown.

However, that change does not include internal caches. Internal caches are still subject to the "confusing state" mentioned in the original issue. The internal caches exposed to the user then suffer from an undefined behavior after an incomplete restart.

We need to update to consider the internal caches. Some internal caches are utilized during the start, for example, loading the existing configurations. The change must ensure a cache manager starts, but the underlying internal caches should not execute any operations.