improve no-data fallback mode for global ratelimiters #7021
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bursts are surprisingly bad even in global mode, so this raises the burst in that scenario.
when global usage is known, the unused-rps-boosting should take care of it, unless they are approaching their RPS (in which case reducing the burst is good).
(this is not yet complete, just proof-of-concept-ing for now and letting CI tell me if there are surprises)