<!--- Verify first that your issue is not already reported on GitHub -->
<!--- Also test if the latest release and devel branch are affected too -->
<!--- Complete *all* sections as described, this form is processed automatically -->

##### SUMMARY
<!--- Explain the problem briefly below -->
As of Ansible 2.7 the `--force-handlers` option is no longer running the handler/s on all hosts when used with strategy free. Only tested back to 2.5 and this was working as I would expect it to on 2.5 & 2.6.

##### ISSUE TYPE
- Bug Report

##### COMPONENT NAME
<!--- Write the short name of the module, plugin, task or feature below, use your best guess if unsure -->
plugins/strategy 

##### ANSIBLE VERSION
<!--- Paste verbatim output from "ansible --version" between quotes -->
```paste below
ansible 2.10.0.dev0
  config file = /Users/bdudas/dev-net/handlers/ansible.cfg
  configured module search path = [u'/Users/bdudas/.ansible/plugins/modules', u'/usr/share/ansible/plugins/modules']
  ansible python module location = /Users/bdudas/dev-net/handlers/ansible/lib/ansible
  executable location = /Users/bdudas/dev-net/handlers/ansible/bin/ansible
  python version = 2.7.16 (default, Oct 16 2019, 00:34:56) [GCC 4.2.1 Compatible Apple LLVM 10.0.1 (clang-1001.0.37.14)]
```

##### CONFIGURATION
<!--- Paste verbatim output from "ansible-config dump --only-changed" between quotes -->
```paste below
DEFAULT_STRATEGY(/Users/bdudas/dev-net/handlers/ansible.cfg) = free
HOST_KEY_CHECKING(/Users/bdudas/dev-net/handlers/ansible.cfg) = False
RETRY_FILES_ENABLED(/Users/bdudas/dev-net/handlers/ansible.cfg) = False
```

##### OS / ENVIRONMENT
<!--- Provide all relevant information below, e.g. target OS versions, network device firmware, etc. -->


##### STEPS TO REPRODUCE
<!--- Describe exactly how to reproduce the problem, using a minimal test-case -->

<!--- Paste example playbooks or commands between quotes below -->
```yaml
---
- hosts: all
  gather_facts: false

  tasks:
    - command: hostname
      register: id
      notify: recovery_x

    - debug:
        var: id

    - name: failure
      fail: msg="Testing Failure"
      when: inventory_hostname == 'covfefe'

  handlers:
    - name: recovery_x
      shell: hostname
...
```
ansible-playbook <playbook.yml> --force-handlers
<!--- HINT: You can paste gist.github.com links for larger files -->

##### EXPECTED RESULTS
<!--- Describe what you expected to happen when running the steps above -->
Handlers will run against all hosts when using the `--force-handlers` option. 

##### ACTUAL RESULTS
<!--- Describe what actually happened. If possible run with extra verbosity (-vvvv) -->
Handler is only run on 1 of the 2 target hosts.
<!--- Paste verbatim command output between quotes -->
```paste below

```

'''
        Loads an included YAML file of tasks, applying the optional set of variables.
        '''
        display.debug("loading included file: %s" % included_file._filename)
        try:
            data = self._loader.load_from_file(included_file._filename)
            if data is None:
                return []
            elif not isinstance(data, list):
                raise AnsibleError("included task files must contain a list of tasks")
            ti_copy = self._copy_included_file(included_file)
            
            
            
            tags = included_file._task.vars.pop('tags', [])
            if isinstance(tags, string_types):
                tags = tags.split(',')
            if len(tags) > 0:
                if len(included_file._task.tags) > 0:
                    raise AnsibleParserError("Include tasks should not specify tags in more than one way (both via args and directly on the task). "
                                             "Mixing tag specify styles is prohibited for whole import hierarchy, not only for single import statement",
                                             obj=included_file._task._ds)
                display.deprecated("You should not specify tags in the include parameters. All tags should be specified using the task-level option",
                                   version='2.12')
                included_file._task.tags = tags
            block_list = load_list_of_blocks(
                data,