[Bug] fix the service to fail close to the failure of loading the configuration file

Legal service is now failing open to the "partition country of origin" file loading failure. If it is failed to load the configuration file, the request returns successfully by considering there is no content in the configuration

Failing open isn't a bad thing from a partition point of view. e.g. don't fail the whole service because one partition doesn't load. Maybe its ok that the single partition isn't available, the concern if it fails open for a partition is existing valid legal tags could be made non-compliant and then soft delete data related to it. so the fix should only fail the partition which can't load the configration file but not the whole service