Allow room creation but not publishing to continue if room publication rules...

Allow room creation but not publishing to continue if room publication rules are violated when creating a new room. (#16811)

Prior to this PR, if a request to create a public (public as in
published to the rooms directory) room violated the room list
publication rules set in the
[config](https://matrix-org.github.io/synapse/latest/usage/configuration/config_documentation.html#room_list_publication_rules),
the request to create the room was denied and the room was not created.

This PR changes the behavior such that when a request to create a room
published to the directory violates room list publication rules, the
room is still created but the room is not published to the directory.