### 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)

"""
        Set the access policy on the given DAG's ViewModel.
        :param dag_id: the ID of the DAG whose permissions should be updated
        :param access_control: a dict where each key is a rolename and
            each value is a set() of action names (e.g. {'can_read'})
        """
        dag_resource_name = permissions.resource_name_for_dag(dag_id)
        def _get_or_create_dag_permission(action_name: str) -> Permission | None:
            perm = self.get_permission(action_name, dag_resource_name)
            if not perm:
                self.log.info("Creating new action '%s' on resource '%s'", action_name, dag_resource_name)
                perm = self.create_permission(action_name, dag_resource_name)
            return perm
        def _revoke_stale_permissions(resource: Resource):
            existing_dag_perms = self.get_resource_permissions(resource)
            for perm in existing_dag_perms:
                non_admin_roles = [role for role in perm.role if role.name != "Admin"]
                for role in non_admin_roles:
                    target_perms_for_role = access_control.get(role.name, ())
                    if perm.action.name not in target_perms_for_role: