docfx: docfx pdf does not generate api docs

Operating System: (Windows or Linux or MacOS) Windows 10 DocFX Version Used: 2.59.3.0

Template used: (default or statictoc or contain custom template) Default Steps to Reproduce:

1. Setup api docs metadata as defined in https://dotnet.github.io/docfx/tutorial/walkthrough/walkthrough_create_a_docfx_project_2.html
2. Run docfx pdf docfx.json

Expected Behavior:

Pdf should generate without error.

Actual Behavior:

I get an error saying api\toc.yml does not exist and the pdf contains no api documentation.

Running docfx build docfx.json generates the api docs.