go back to defaulting wrapping commands in shell

this was taken out in an effort to default to the user's shell but creates issues as this is not known ahead of time
and its painful to set executable and shell_type for all servers, it should only be needed for those that restrict the user
to specific shells and when /bin/sh is not available. raw and command may still bypass this by explicitly passing None.
fixes #13882

still conditional

lib/ansible/plugins/action/__init__.py

@@ -481,8 +481,7 @@ class ActionBase(with_metaclass(ABCMeta, object)):
         display.debug("done with _execute_module (%s, %s)" % (module_name, module_args))
         return data
 
-    def _low_level_execute_command(self, cmd, sudoable=True, in_data=None,
-            executable=None, encoding_errors='replace'):
+    def _low_level_execute_command(self, cmd, sudoable=True, in_data=None, executable=C.DEFAULT_EXECUTABLE, encoding_errors='replace'):
         '''
         This is the function which executes the low level shell command, which
         may be commands to create/remove directories for temporary files, or to
@@ -498,7 +497,7 @@ class ActionBase(with_metaclass(ABCMeta, object)):
         '''
 
         if executable is not None:
-            cmd = executable + ' -c ' + cmd
+            cmd = executable + ' -c ' + pipes.quote(cmd)
 
         display.debug("_low_level_execute_command(): starting")
         if not cmd:

test/units/plugins/action/test_action.py

@@ -49,7 +49,7 @@ class TestActionBase(unittest.TestCase):
 
         play_context.remote_user = 'apo'
         action_base._low_level_execute_command('ECHO', sudoable=True)
-        play_context.make_become_cmd.assert_called_once_with('ECHO', executable=None)
+        play_context.make_become_cmd.assert_called_once_with("/bin/sh -c ECHO", executable='/bin/sh')
 
         play_context.make_become_cmd.reset_mock()
 
@@ -58,6 +58,6 @@ class TestActionBase(unittest.TestCase):
         try:
             play_context.remote_user = 'root'
             action_base._low_level_execute_command('ECHO SAME', sudoable=True)
-            play_context.make_become_cmd.assert_called_once_with('ECHO SAME', executable=None)
+            play_context.make_become_cmd.assert_called_once_with("/bin/sh -c 'ECHO SAME'", executable='/bin/sh')
         finally:
             C.BECOME_ALLOW_SAME_USER = become_allow_same_user