### 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)

"""Returns a dict with a key of role name and value of role with early loaded permissions"""
        return {
            r.name: r
            for r in self.appbuilder.get_session.query(self.role_model).options(
                joinedload(self.role_model.permissions)
            )
        }
    def create_dag_specific_permissions(self) -> None:
        """
        Creates 'can_read', 'can_edit', and 'can_delete' permissions for all
        DAGs, along with any `access_control` permissions provided in them.
        This does iterate through ALL the DAGs, which can be slow. See `sync_perm_for_dag`
        if you only need to sync a single DAG.
        :return: None.
        """
        perms = self.get_all_permissions()
        dagbag = DagBag(read_dags_from_db=True)
        dagbag.collect_dags_from_db()
        dags = dagbag.dags.values()
        for dag in dags:
            root_dag_id = dag.parent_dag.dag_id if dag.parent_dag else dag.dag_id
            dag_resource_name = permissions.resource_name_for_dag(root_dag_id)
            for action_name in self.DAG_ACTIONS:
                if (action_name, dag_resource_name) not in perms:
                    self._merge_perm(action_name, dag_resource_name)
            if dag.access_control:
                self.sync_perm_for_dag(dag_resource_name, dag.access_control)
    def update_admin_permission(self) -> None: