### 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 all permissions as a set of tuples with the action and resource names"""
        return set(
            self.appbuilder.get_session.query(self.permission_model)
            .join(self.permission_model.action)
            .join(self.permission_model.resource)
            .with_entities(self.action_model.name, self.resource_model.name)
            .all()
        )
    def _get_all_non_dag_permissions(self) -> dict[tuple[str, str], Permission]:
        """
        Returns a dict with a key of (action_name, resource_name) and value of permission
        with all permissions except those that are for specific DAGs.
        """
        return {
            (action_name, resource_name): viewmodel
            for action_name, resource_name, viewmodel in (
                self.appbuilder.get_session.query(self.permission_model)
                .join(self.permission_model.action)
                .join(self.permission_model.resource)
                .filter(~self.resource_model.name.like(f"{permissions.RESOURCE_DAG_PREFIX}%"))
                .with_entities(self.action_model.name, self.resource_model.name, self.permission_model)
                .all()
            )
        }
    def _get_all_roles_with_permissions(self) -> dict[str, Role]: