always have a publish workflow service even when workflow is disabled

| Q             | A
| ------------- | ---
| Bug fix?      | no
| New feature?  | yes
| BC breaks?    | no
| Deprecations? | no
| Tests pass?   | yes
| Fixed tickets | -
| License       | MIT
| Doc PR        | TODO

**security improvement**

this allows services that depend on the publish workflow checker to simplify their logic and avoids security issues by not using `on-invalid="ignore"` service arguments that risk typos.

this is inspired by a discussion with @lapistano about not having every service know about special situations.