refactor(metadata-protocol): move the publish backfill pair and the draft pair out of protocol.ts into protocol-publish-backfill.ts and protocol-drafts.ts (#25467 cut 12)

refactor(metadata-protocol): move the publish backfill pair and the draft pair out of protocol.ts into protocol-publish-backfill.ts and protocol-drafts.ts (#25467 cut 12) #13436