[jdk11u-dev] RFR: 8222091: Javadoc does not handle package annotations correctly on package-info.java

[Liam Miller-Cushon]

This is a backport of [JDK-8222091: Javadoc does not handle package annotations correctly on package-info.java](https://bugs.openjdk.java.net/browse/JDK-8222091)

This fixes a regression in 11.0.17 caused by the backport of [JDK-8193462](https://bugs.openjdk.org/browse/JDK-8193462), see [JDK-8295850](https://bugs.openjdk.org/browse/JDK-8295850)

Original patch applied cleanly.

-------------

Commit messages:
 - Backport 4d08dd703e4d742635c3dbc8acc4b07b3a298657

Changes: https://git.openjdk.org/jdk11u-dev/pull/1472/files
 Webrev: https://webrevs.openjdk.org/?repo=jdk11u-dev&pr=1472&range=00
  Issue: https://bugs.openjdk.org/browse/JDK-8222091
  Stats: 246 lines in 9 files changed: 240 ins; 0 del; 6 mod
  Patch: https://git.openjdk.org/jdk11u-dev/pull/1472.diff
  Fetch: git fetch https://git.openjdk.org/jdk11u-dev pull/1472/head:pull/1472

PR: https://git.openjdk.org/jdk11u-dev/pull/1472