fix(transaction-pay-controller): block raw publish without Pay quote

[matthewwalsh0]

Explanation

TransactionPayPublishHook previously returned an empty hook result whenever a transaction had no Pay quotes. That is still useful for transactions the Pay controller is only observing, but unsafe once a transaction has explicit Pay configuration because TransactionController can continue through its normal raw-publish fallback.

This PR makes empty quotes fail closed for transactions with explicit Pay configuration, while preserving the existing fallthrough behavior for unmanaged transactions with no quote state.

References

Checklist

• I've updated the test suite for new or updated code as appropriate\n- [ ] I've updated documentation (JSDoc, Markdown, etc.) for new or updated code as appropriate\n- [x] I've communicated my changes to consumers by updating changelogs for packages I've changed\n- [ ] I've introduced breaking changes in this PR and have prepared draft pull requests for clients and consumer packages to resolve them