### Apache Airflow version

2.3.3 (latest released)

### What happened

I change my DAG from 
```python
with DAG(
   'test',
    access_control={'team':{'can_edit','can_read'}},
) as dag:
   ...
```

to

```python
with DAG(
   'test',
) as dag:
   ...
```

Remove `access_control` arguments, Scheduler can't sync permissions to db.

If we write code like this,

```python
with DAG(
   'test',
   access_control = {'team': {}}
) as dag:
   ...
```

It works.

### What you think should happen instead

It should clear permissions to `test` DAG on Role `team`.

I think we should give a consistent behaviour of permissions sync. If we give `access_control` argument, permissions assigned in Web will clear when we update DAG file.

### How to reproduce

_No response_

### Operating System

CentOS Linux release 7.9.2009 (Core)

### Versions of Apache Airflow Providers

```
airflow-code-editor==5.2.2
apache-airflow==2.3.3
apache-airflow-providers-celery==3.0.0
apache-airflow-providers-ftp==3.0.0
apache-airflow-providers-http==3.0.0
apache-airflow-providers-imap==3.0.0
apache-airflow-providers-microsoft-psrp==2.0.0
apache-airflow-providers-microsoft-winrm==3.0.0
apache-airflow-providers-mysql==3.0.0
apache-airflow-providers-redis==3.0.0
apache-airflow-providers-samba==4.0.0
apache-airflow-providers-sftp==3.0.0
apache-airflow-providers-sqlite==3.0.0
apache-airflow-providers-ssh==3.0.0
```

### Deployment

Virtualenv installation

### Deployment details

_No response_

### Anything else

_No response_

### Are you willing to submit PR?

- [X] Yes I am willing to submit a PR!

### Code of Conduct

- [X] I agree to follow this project's [Code of Conduct](https://github.com/apache/airflow/blob/main/CODE_OF_CONDUCT.md)

"""Create perm-vm if not exist and insert into FAB security model for all-dags."""
        
        for resource_name in self.DAG_RESOURCES:
            for action_name in self.DAG_ACTIONS:
                self._merge_perm(action_name, resource_name)
    def check_authorization(
        self,
        perms: Sequence[tuple[str, str]] | None = None,
        dag_id: str | None = None,
    ) -> bool:
        """Checks that the logged in user has the specified permissions."""
        if not perms:
            return True
        for perm in perms:
            if perm in (
                (permissions.ACTION_CAN_READ, permissions.RESOURCE_DAG),
                (permissions.ACTION_CAN_EDIT, permissions.RESOURCE_DAG),
                (permissions.ACTION_CAN_DELETE, permissions.RESOURCE_DAG),
            ):
                can_access_all_dags = self.has_access(*perm)
                if can_access_all_dags:
                    continue
                action = perm[0]
                if self.can_access_some_dags(action, dag_id):
                    continue
                return False
            elif not self.has_access(*perm):
                return False
        return True
class FakeAppBuilder: