Description of problem:

Fallback on the OWNERS file should work when PaaC Policy is used

Prerequisites (if any, like setup, operators/versions):

Steps to Reproduce

• create a user with no collabo right onto target repo or org
• create a policy on repo CR  giving access to a group of users but not the one we have just created.
• create a OWNER files with the created user in it
• ensure it works by creating a  PR as new user from a fork to the target repo.

Actual results:

Expected results:

Reproducibility (Always/Intermittent/Only Once):

Acceptance criteria: 

Definition of Done:

Build Details:

Additional info (Such as Logs, Screenshots, etc):

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