ACL is partially bypassed: Clients without anonymous token can join the cluster and read members in the cluster

#### Overview of the Issue

Hello, sirs!
I have been trying to configure a Consul Cluster with ACL deny policy, but I noticed some weird behaviour: anonymous clients with anonymous token (which is set by default) were able to `join` and view `members` of the cluster.

P.S. I have also read [this similar archived issue](https://github.com/hashicorp/consul/issues/7915) and tried the workaround: I enabled the gossip encryption and indeed I was not able to join without setting `encrypt: XXXXX` in the client's config (see error below)

```shell
$ consul join 10.26.29.28
Error joining address '10.26.29.28': Unexpected response code: 500 (1 error occurred:
* Failed to join 10.26.29.28:8301: Remote state is encrypted and encryption is not configured)
Failed to join any nodes.
```

After having set `encrypt: XXXXX` on the client side, I was able to join and check cluster members ~with anonymous token~ again.

**NOTE**: the following reproduction steps did not include ***gossip encrpyption***

---

#### Reproduction Steps

1. Create 1 server on a VM (10.26.29.28)
2. Run `consul acl bootstrap` and set the bootstrap token as *agent token*
3. Create 1 client on a different VM (10.26.86.30)
4. Join the server with `consul join`
5. Check members on the server and client side with anonymous token (Disclaimer: commands `join` and `members` on the *client* side will succeed)

```sh
# server
$ echo $CONSUL_HTTP_TOKEN

$ consul members
$ consul catalog nodes
$ consul info
Error querying agent: Unexpected response code: 403 (Permission denied: anonymous token lacks permission 'agent:read' on "consul-test-02". The anonymous token is used implicitly when a request does not specify a token.)

## set CONSUL TOKEN
$ export CONSUL_HTTP_TOKEN=
$ consul catalog services
consul
$ consul catalog nodes
Node ID Address DC
consul-test-02 4d108e18 10.26.29.28 m6
web-server-01 57a24a79 10.26.86.30 m6
$ consul members
Node Address Status Type Build Protocol DC Partition Segment
consul-test-02 10.26.29.28:8301 alive server 1.19.2 2 m6 default
web-server-01 10.26.86.30:8301 alive client 1.19.2 2 m6 default

# client
$ echo $CONSUL_HTTP_TOKEN

$ consul join 10.26.29.28
Successfully joined cluster by contacting 1 nodes.
$ consul members
Node Address Status Type Build Protocol DC Partition Segment
consul-test-02 10.26.29.28:8301 alive server 1.19.2 2 m6 default
web-server-01 10.26.86.30:8301 alive client 1.19.2 2 m6 default
```

**NOTE**: in the client log there are constant errors about `token lacks permission`, which is reasonable since *client* uses **anonymous** token

```log
2024-11-06T21:28:07.413+0300 [WARN] agent: Coordinate update blocked by ACLs: accessorID=""
2024-11-06T21:28:29.555+0300 [ERROR] agent.client: RPC failed to server: method=Coordinate.Update server=10.26.29.28:8300 error="rpc error making call: Permission denied: anonymous token lacks permission 'node:write' on \"web-server-01\". The anonymous token is used implicitly when a request does not specify a token."
```

I tried to register a service from the client agent (with anonymous token) and I got the error `token lacks permission service:write` (which is what I expected). See `service.json`

```json
{
"service": {
"id": "web-server-01",
"name": "frontend",
"tags": ["v0.1", "dev"],
"port": 80
}
}
```

```sh
# client
$ consul catalog register service.json

2024-11-06T21:32:25.918+0300 [WARN] agent: Coordinate update blocked by ACLs: accessorID=""
2024-11-06T21:32:41.184+0300 [ERROR] agent.client: RPC failed to server: method=Catalog.Register server=10.26.29.28:8300 error="rpc error making call: Permission denied: anonymous token lacks permission 'service:write' on \"frontend\". The anonymous token is used implicitly when a request does not specify a token."

$ consul catalog services
consul

$ export CONSUL_HTTP_TOKEN=
$ consul catalog register service.json
Registered service frontend
$ consul catalog services
consul
frontend
```

So, as far as I see, there are only two commands `consul join` and `consul members` that work on the client agent with anonymous token - other commands would require the *agent* token for the client. It is strange since I cannot list members with anonymous token on the *server* side, for example.

### Consul info for both Client and Server

Client info

```text
agent:
check_monitors = 0
check_ttls = 0
checks = 0
services = 0
build:
prerelease =
revision = 048f1936
version = 1.19.2
version_metadata =
consul:
acl = disabled
known_servers = 1
server = false
runtime:
arch = amd64
cpu_count = 4
goroutines = 49
max_procs = 4
os = linux
version = go1.22.5
serf_lan:
coordinate_resets = 0
encrypted = false
event_queue = 0
event_time = 2
failed = 0
health_score = 0
intent_queue = 0
left = 0
member_time = 1674
members = 2
query_queue = 0
query_time = 1
```

Client agent HCL config

```json
{
"server": false,
"node_name": "web-server-01",
"datacenter": "m6",
"data_dir": "/home/user/consul/client_data"
}
```

Server info

```sh
$ consul info
agent:
check_monitors = 0
check_ttls = 0
checks = 0
services = 0
build:
prerelease =
revision = 048f1936
version = 1.19.2
version_metadata =
consul:
acl = enabled
bootstrap = true
known_datacenters = 1
leader = true
leader_addr = 10.26.29.28:8300
server = true
raft:
applied_index = 3995
commit_index = 3995
fsm_pending = 0
last_contact = 0
last_log_index = 3995
last_log_term = 3
last_snapshot_index = 0
last_snapshot_term = 0
latest_configuration = [{Suffrage:Voter ID:4d108e18-1f60-1121-0466-bccb13e2dcc5 Address:10.26.29.28:8300}]
latest_configuration_index = 0
num_peers = 0
protocol_version = 3
protocol_version_max = 3
protocol_version_min = 0
snapshot_version_max = 1
snapshot_version_min = 0
state = Leader
term = 3
runtime:
arch = amd64
cpu_count = 4
goroutines = 198
max_procs = 4
os = linux
version = go1.22.5
serf_lan:
coordinate_resets = 0
encrypted = false
event_queue = 0
event_time = 2
failed = 0
health_score = 0
intent_queue = 0
left = 0
member_time = 1674
members = 2
query_queue = 0
query_time = 1
serf_wan:
coordinate_resets = 0
encrypted = false
event_queue = 0
event_time = 1
failed = 0
health_score = 0
intent_queue = 0
left = 0
member_time = 25
members = 1
query_queue = 0
query_time = 1
```

Server agent HCL config

```json
{
"log_level": "INFO",
"server": true,
"ui_config": {
"enabled": true
},
"node_name": "consul-test-02",
"bootstrap_expect": 1,
"leave_on_terminate": true,
"datacenter": "m6",
"data_dir": "/home/user/consul/data",
"client_addr": "0.0.0.0",
"bind_addr": "10.26.29.28 ",
"advertise_addr": "10.26.29.28 ",
"enable_syslog": true,
"acl": {
"enabled": true,
"default_policy": "deny",
"down_policy": "extend-cache",
"enable_token_persistence": true,
"tokens": {
"initial_management": "",
"agent": "",
}
},
"performance": {
"raft_multiplier": 1
}
}
```

### Operating system and Environment details

Consul version: 1.19.2

Ubuntu 22.04 LTS both for the *client* and *server*

### Log Fragments

Client side logs after joining the server

```log
2024-11-06T21:28:07.413+0300 [WARN] agent: Coordinate update blocked by ACLs: accessorID=""
2024-11-06T21:28:29.555+0300 [ERROR] agent.client: RPC failed to server: method=Coordinate.Update server=10.26.29.28:8300 error="rpc error making call: Permission denied: anonymous token lacks permission 'node:write' on \"web-server-01\". The anonymous token is used implicitly when a request does not specify a token."
```

Client side logs after trying to register a service from the client

```log
2024-11-06T21:32:25.918+0300 [WARN] agent: Coordinate update blocked by ACLs: accessorID=""
2024-11-06T21:32:41.184+0300 [ERROR] agent.client: RPC failed to server: method=Catalog.Register server=10.26.29.28:8300 error="rpc error making call: Permission denied: anonymous token lacks permission 'service:write' on \"frontend\". The anonymous token is used implicitly when a request does not specify a token."
```

Start by reproducing the default-deny ACL setup with the `consul join` and `consul members` commands described in the issue. Trace the ACL checks for those operations and verify that anonymous clients are denied while authorized clients retain access.

Written by the indexing model from the issue text.