fix: set nogo flags as universal (#4623)

**What type of PR is this?**

Bug fix

**What does this PR do? Why is it needed?**

This ensure the nogo flag doesn't get wiped when transitioning to an
exec config when --incompatible_exclude_starlark_flags_from_exec_config
is set.

Without this change, a cycle shows up in the dependencies when the
option is set.

Fixes #4620

(thanks @fmeum for the diagnosis!)