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chg: Measure all relays as entry

juga requested to merge juga/sbws:m20_issue40205_exits_as_entry into m20

no matter the options in consensus (congestion control or upload/download). Also select always exits as helpers (with 2 as FlowCtrl). Previously, if the relay is an exit, it was tried to measured as an exit.

Closes #40205 (closed)

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