fix: fix session budget penalty logic #23358

Job	Run time
bulk-filter	1m 13s
lint	3m 29s
windows	1m 47s
changes	30s
units (8)	51s
enforcer	27m 14s
gapic-libraries-bom	19m 13s
units (21)	30s
units (25)	32s
units (17)	31s
units (26)	35s
units (11)	34s
split-units (java-bigtable, 8)	5m 46s
split-clirr (java-bigtable)	2m 16s
split-dependencies (java-bigtable)	5m 23s
split-units (java-bigtable, 21)	6m 28s
split-units (java-bigtable, 17)	7m 59s
split-units (java-bigtable, 26)	18m 12s
split-units (java-bigtable, 11)	5m 59s
split-units (java-bigtable, 25)	7m 1s
conditional-required-check	3s
	1h 56m 6s

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