Deactivate controllers with command interfaces to hardware on DEACTIVATE (backport #2334)

[mergify]

Closes #2318

While testing with hardware I found it was easiest to only return DEACTIVATE from write() so that my hardware_interface didn't have to keep track of the number of times DEACTIVATE has been returned in read(). I also found that allowing write() while the hardware is INACTIVE does not make sense because ALL commanding controllers are stopped on deactivation and the hardware would not know which command_interfaces might be allowed returning DEACTIVATE again which would cause the controller_manager to get stuck in a loop attempting to stop any controllers with with command interfaces to the hardware.

I also added 2 new test to make sure the controller_manager correctly handles DEACTIVATE on read/write.

---

This is an automatic backport of pull request #2334 done by Mergify.

[codecov]

Codecov Report

Attention: Patch coverage is 97.48428% with 4 lines in your changes missing coverage. Please review.

Project coverage is 88.70%. Comparing base (1c21a98) to head (a3dc13d).
Report is 1 commits behind head on jazzy.

Files with missing lines	Patch %	Lines
controller_manager/src/controller_manager.cpp	88.00%	2 Missing and 1 partial ⚠️
hardware_interface/src/resource_manager.cpp	85.71%	0 Missing and 1 partial ⚠️

Additional details and impacted files

@@            Coverage Diff             @@
##            jazzy    #2341      +/-   ##
==========================================
+ Coverage   88.66%   88.70%   +0.04%     
==========================================
  Files         144      144              
  Lines       16651    16728      +77     
  Branches     1437     1442       +5     
==========================================
+ Hits        14764    14839      +75     
- Misses       1335     1336       +1     
- Partials      552      553       +1     

Flag	Coverage Δ
unittests	88.70% <97.48%> (+0.04%)	⬆️

Flags with carried forward coverage won't be shown. Click here to find out more.

Files with missing lines	Coverage Δ
...est_controller_manager_hardware_error_handling.cpp	100.00% <100.00%> (ø)
hardware_interface/src/system.cpp	80.42% <100.00%> (+0.42%)	⬆️
...rface/test/mock_components/test_generic_system.cpp	99.72% <ø> (ø)
...dware_interface/test/test_component_interfaces.cpp	97.65% <100.00%> (-0.03%)	⬇️
...e_interface_testing/test/test_resource_manager.cpp	99.45% <100.00%> (ø)
hardware_interface/src/resource_manager.cpp	74.05% <85.71%> (-0.03%)	⬇️
controller_manager/src/controller_manager.cpp	74.53% <88.00%> (+0.13%)	⬆️

🚀 New features to boost your workflow:

• ❄️ Test Analytics: Detect flaky tests, report on failures, and find test suite problems.