Make --remote_local_fallback honor --spawn_strategy

### Description of the feature request:

In case of remote execution issues, I expect `--remote_local_fallback` with `--spawn_strategy=remote,worker,linux-sandbox` to fallback to `worker` if available, and otherwise to `linux-sandbox`.

But instead I see fallback based on `--remote_local_fallback_strategy`, which is supposed to be a **no-op** according to [documentation](https://bazel.google.cn/reference/command-line-reference?hl=en#flag--remote_local_fallback_strategy)

I see two alternatives, preferably:

- make `--remote_local_fallback` honor `--spawn_strategy`

or otherwise:

- Update documentation for `--remote_local_fallback_strategy` about it being a no-op (which is incorrect) and remove the deprecation of it.

### What underlying problem are you trying to solve with this feature?

I would like reliable builds with linux-sandbox, when remote execution cluster is temporarily unavailable.

I could use `--remote_local_fallback_strategy` despite it claiming to be a no-op, but that results in deprecation warnings.

### Which operating system are you running Bazel on?

_No response_

### What is the output of `bazel info release`?

_No response_

### If `bazel info release` returns `development version` or `(@non-git)`, tell us how you built Bazel.

I use a custom build with local patches on top of 5.0.0-pre.20210929.1, but it seems this code has not changed on main branch.

### What's the output of `git remote get-url origin; git rev-parse master; git rev-parse HEAD` ?

_No response_

### Have you found anything relevant by searching the web?

Based on description/comments from @agoulti and @philwo in https://github.com/bazelbuild/bazel/issues/7480, it seems the intention was that `--remote_local_fallback_strategy` should not be needed any more.

Then @ishikhman wrote a https://github.com/bazelbuild/bazel/issues/7480#issuecomment-528352938 that it is still needed for this use case, but ticket was closed without addressing that.

### Any other information, logs, or outputs that you want to share?

_No response_