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[xds] Fallback implementation (grpc#36145)
As per [gRFC A71](https://github.com/grpc/proposal/blob/master/A71-xds-fallback.md). Closes grpc#36145 COPYBARA_INTEGRATE_REVIEW=grpc#36145 from eugeneo:fallback-review 4871c0b PiperOrigin-RevId: 623211613
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