Make Minimal Access default role behave like other default roles

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Problem

The Minimal Access role is currently only available at the top level group. This access level does not behave like any other role and it's making the code complex and hard to maintain.

It also breaks custom roles because you can create a custom role with base access of minimal access but then you can't actually assign it at the project level which is confusing.

We should understand the use case for this role and make sure that it actually behaves in a way that supports that.