Enforce superuser permissions checks during ALTER ROLE/DATABASE SET, rather

than during define_custom_variable().  This entails rejecting an ALTER
command if the target variable doesn't have a known (non-placeholder)
definition, unless the calling user is superuser.  When the variable *is*
known, we can correctly apply the rule that only superusers can issue ALTER
for SUSET parameters.  This allows define_custom_variable to apply ALTER's
values for SUSET parameters at module load time, secure in the knowledge
that only a superuser could have set the ALTER value.  This change fixes a
longstanding gotcha in the usage of SUSET-level custom parameters; which
is a good thing to fix now that plpgsql defines such a parameter.