ACL replication breaks after upgrade from 1.9.5 to 1.14.3

#### Overview of the Issue

After upgrading Consul from 1.9.5 to 1.14.3, ACL replication breaks. It's fixed by some rather strange actions. We decided to file a bug report since we could not find any notes about this behavior in the documentation.

#### Reproduction Steps

1. Deploy at least three Consul clusters on version 1.9.5, one of them must be declared as primary datacenter, the rest must be configured to replicate ACLs from it.
2. Upgrade all clusters to 1.14.3. After that, secondary clusters will log ACL replication errors periodically. See log 1.
3. In the web ui of any secondary datacenter, create an empty policy. This will temporarily fix the problem in that DC, but not in the others. After that, everything will break back without manual intervention. See log 2.
4. Bind the empty policy from step 3 to any existing token. (For example, we bound it to the initial management token).

After that, the replication error will disappear for all datacenters and replication will work as expected.

### Operating system and Environment details

Ubuntu 20.04.5 LTS, x86_64 GNU/Linux

### Log Fragments

Log 1

```log
2023-02-15T12:40:01.391+0300 [DEBUG] agent.server.replication.acl.policy: finished fetching acls: amount=27
2023-02-15T12:40:01.391+0300 [DEBUG] agent.server.replication.acl.policy: acl replication: local=27 remote=27
2023-02-15T12:40:01.391+0300 [DEBUG] agent.server.replication.acl.policy: acl replication: deletions=0 updates=1
2023-02-15T12:40:01.391+0300 [DEBUG] agent.server.replication.acl.policy: acl replication - downloaded updates: amount=1
2023-02-15T12:40:01.391+0300 [DEBUG] agent.server.replication.acl.policy: acl replication - performing updates
2023-02-15T12:40:01.391+0300 [WARN] agent.server.replication.acl.policy: ACL replication error (will retry if still leader): error="failed to update local ACL policies: Failed to apply policy upserts: node is not the leader"
```

Log 2

```log
2023-02-15T13:10:29.486+0300 [DEBUG] agent.server.replication.acl.policy: finished fetching acls: amount=27
2023-02-15T13:10:29.486+0300 [DEBUG] agent.server.replication.acl.policy: acl replication: local=27 remote=27
2023-02-15T13:10:29.487+0300 [DEBUG] agent.server.replication.acl.policy: acl replication: deletions=0 updates=0
2023-02-15T13:10:29.487+0300 [DEBUG] agent.server.replication.acl.policy: ACL replication completed through remote index: index=1867938962
2023-02-15T13:12:44.368+0300 [INFO] agent.server.replication.acl.policy: started ACL Policy replication
2023-02-15T13:12:44.373+0300 [DEBUG] agent.server.replication.acl.policy: finished fetching acls: amount=27
2023-02-15T13:12:44.373+0300 [DEBUG] agent.server.replication.acl.policy: acl replication: local=27 remote=27
2023-02-15T13:12:44.373+0300 [DEBUG] agent.server.replication.acl.policy: acl replication: deletions=0 updates=0
2023-02-15T13:12:44.373+0300 [DEBUG] agent.server.replication.acl.policy: ACL replication completed through remote index: index=1867938962
2023-02-15T13:15:40.920+0300 [DEBUG] agent.server.replication.acl.policy: finished fetching acls: amount=27
2023-02-15T13:17:53.696+0300 [DEBUG] agent.server.replication.acl.policy: finished fetching acls: amount=27
2023-02-15T13:17:53.696+0300 [DEBUG] agent.server.replication.acl.policy: acl replication: local=27 remote=27
2023-02-15T13:17:53.696+0300 [DEBUG] agent.server.replication.acl.policy: acl replication: deletions=0 updates=0
2023-02-15T13:17:53.696+0300 [DEBUG] agent.server.replication.acl.policy: ACL replication completed through remote index: index=1867938962
2023-02-15T13:23:00.541+0300 [DEBUG] agent.server.replication.acl.policy: finished fetching acls: amount=27
2023-02-15T13:23:00.541+0300 [DEBUG] agent.server.replication.acl.policy: acl replication: local=27 remote=27
2023-02-15T13:23:00.541+0300 [DEBUG] agent.server.replication.acl.policy: acl replication: deletions=0 updates=0
2023-02-15T13:23:00.541+0300 [DEBUG] agent.server.replication.acl.policy: ACL replication completed through remote index: index=1867938962
2023-02-15T13:28:01.043+0300 [DEBUG] agent.server.replication.acl.policy: finished fetching acls: amount=27
2023-02-15T13:28:01.043+0300 [DEBUG] agent.server.replication.acl.policy: acl replication: local=27 remote=27
2023-02-15T13:28:01.043+0300 [DEBUG] agent.server.replication.acl.policy: acl replication: deletions=0 updates=0
2023-02-15T13:28:01.043+0300 [DEBUG] agent.server.replication.acl.policy: ACL replication completed through remote index: index=1867938962
2023-02-15T13:33:11.701+0300 [DEBUG] agent.server.replication.acl.policy: finished fetching acls: amount=27
2023-02-15T13:33:11.701+0300 [WARN] agent.server.replication.acl.policy: ACL replication remote index moved backwards, forcing a full ACL sync: from=1867938962 to=1692767365
2023-02-15T13:33:11.701+0300 [DEBUG] agent.server.replication.acl.policy: acl replication: local=27 remote=27
2023-02-15T13:33:11.701+0300 [DEBUG] agent.server.replication.acl.policy: acl replication: deletions=0 updates=1
2023-02-15T13:33:11.705+0300 [DEBUG] agent.server.replication.acl.policy: acl replication - downloaded updates: amount=1
2023-02-15T13:33:11.706+0300 [DEBUG] agent.server.replication.acl.policy: acl replication - performing updates
2023-02-15T13:33:11.713+0300 [DEBUG] agent.server.replication.acl.policy: acl replication - upserted batch: number_upserted=1 batch_size=497
2023-02-15T13:33:11.713+0300 [DEBUG] agent.server.replication.acl.policy: acl replication - finished updates
2023-02-15T13:33:11.713+0300 [DEBUG] agent.server.replication.acl.policy: ACL replication completed through remote index: index=1692767365
2023-02-15T13:33:11.718+0300 [DEBUG] agent.server.replication.acl.policy: finished fetching acls: amount=27
2023-02-15T13:33:11.718+0300 [DEBUG] agent.server.replication.acl.policy: acl replication: local=27 remote=27
2023-02-15T13:33:11.718+0300 [DEBUG] agent.server.replication.acl.policy: acl replication: deletions=0 updates=0
2023-02-15T13:33:11.718+0300 [DEBUG] agent.server.replication.acl.policy: ACL replication completed through remote index: index=1867938962
2023-02-15T13:38:26.839+0300 [DEBUG] agent.server.replication.acl.policy: finished fetching acls: amount=27
2023-02-15T13:38:26.839+0300 [DEBUG] agent.server.replication.acl.policy: acl replication: local=27 remote=27
2023-02-15T13:38:26.839+0300 [DEBUG] agent.server.replication.acl.policy: acl replication: deletions=0 updates=0
2023-02-15T13:38:26.839+0300 [DEBUG] agent.server.replication.acl.policy: ACL replication completed through remote index: index=1867938962
2023-02-15T13:43:32.062+0300 [DEBUG] agent.server.replication.acl.policy: finished fetching acls: amount=27
2023-02-15T13:43:32.062+0300 [WARN] agent.server.replication.acl.policy: ACL replication remote index moved backwards, forcing a full ACL sync: from=1867938962 to=1692767365
2023-02-15T13:43:32.062+0300 [DEBUG] agent.server.replication.acl.policy: acl replication: local=27 remote=27
2023-02-15T13:43:32.062+0300 [DEBUG] agent.server.replication.acl.policy: acl replication: deletions=0 updates=1
2023-02-15T13:43:32.067+0300 [DEBUG] agent.server.replication.acl.policy: acl replication - downloaded updates: amount=1
2023-02-15T13:43:32.067+0300 [DEBUG] agent.server.replication.acl.policy: acl replication - performing updates
2023-02-15T13:43:32.083+0300 [WARN] agent.server.replication.acl.policy: ACL replication error (will retry if still leader): error="failed to update local ACL policies: Failed to apply policy upserts: Changing the Rules for the builtin global-management policy is not permitted"
```

Start by reproducing the upgrade from Consul 1.9.5 to 1.14.3 with one primary and multiple secondary datacenters, then inspect the ACL replication path indicated by agent.server.replication.acl.policy and the supplied logs. Done means ACL replication remains healthy without creating and binding an empty policy, and the recurring leader or builtin global-management errors no longer occur.

Written by the indexing model from the issue text.