Automatic merge from submit-queue (batch tested with PRs 65388, 64995). If you want to cherry-pick this change to another branch, please follow the instructions <a href="https://github.com/kubernetes/community/blob/master/contributors/devel/cherry-picks.md">here</a>.

Always create kubeClusterIPSet in ipvs proxier

**What this PR does / why we need it**:
This PR creates the kubeClusterIPSet ipset even if kube-proxy is started without masqueradeAll and clusterCIDR.
This is necessary to masquerade traffic sent to a clusterIP from the host network namespace. The code to do so is actually already present here: https://github.com/kubernetes/kubernetes/blob/master/pkg/proxy/ipvs/proxier.go#L1220-L1244

However the second else (neither masqueradeAll nor clusterCIDR are set) cannot be used because, before this PR, the initial test `if !proxier.ipsetList[kubeClusterIPSet].isEmpty()` can never return true when masqueradeAll and clusterCIDR are not set because kubeClusterIPSet is empty.

**Which issue(s) this PR fixes** 
Fixes #65158

```release-note
Allow access to ClusterIP from the host network namespace when kube-proxy is started in IPVS mode without either masqueradeAll or clusterCIDR flags
```

**Additional comment**
Issue #65158 is closed because ClusterIP access from the host has already fixed in master, except for the case described here (no masquerade flag). More detail in the issue.