Do not expand flags in invocation policy twice. `InvocationPolicyEnforcer` [expands all flags before setting](https://github.com/bazelbuild/bazel/blob/60fc2d18fadec5f99849b78bce761da62dd78c32/src/main/java/com/google/devtools/common/options/InvocationPolicyEnforcer.java#L124-L125) them to later call into the `OptionsParser` to set their values, which [repeats the process for the flags with expansions/implicit requirements](https://github.com/bazelbuild/bazel/blob/60fc2d18fadec5f99849b78bce761da62dd78c32/src/main/java/com/google/devtools/common/options/OptionsParserImpl.java#L549-L556). Refactor `OptionsParser` to expose a method for setting flag value without the expansion so that `InvocationPolicyEnforcer` can skip the second, unnecessary expansion. PiperOrigin-RevId: 378775962
{Fast, Correct} - Choose two
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