Fix OpenTelemetry graceful shutdown. #10223

Job	Run time
Go Lint	1m 37s
Generate Code	1m 8s
YAML Lint	16s
Rego PR checks	1m 28s
WASM	8s
Check Generated	23s
Go Test (linux)	4m 51s
Go Build (linux amd64)	2m 23s
Go compat build/test (ubuntu-22.04, 1.20)	3m 46s
Go Test (darwin)	4m 21s
Go Build (linux arm64)	2m 12s
Go Race Detector	6m 5s
Go compat build/test (macos-14, 1.20)	4m 43s
Go Build (linux arm64GO_TAGS="-tags=opa_no_oci")	2m 4s
Go Build (windows amd64)	2m 32s
Go Build (darwin amd64)	1m 49s
Go Build (darwin arm64)	1m 18s
docker image smoke test	33s
smoke-test-binaries (linux, ubuntu-22.04, opa_linux_amd64, amd64)	16s
smoke-test-binaries (linux, ubuntu-22.04, opa_linux_amd64_static, amd64, disabled)	11s
smoke-test-binaries (darwin, macos-13, opa_darwin_amd64, amd64)	26s
smoke-test-binaries (darwin, macos-14, opa_darwin_arm64_static, arm64, disabled)	15s
smoke-test-binaries (windows, windows-latest, opa_windows_amd64.exe, amd64)	36s
	43m 21s

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