Add an admin API for shadow-banning users. (#9209)

This expands the current shadow-banning feature to be usable via
the admin API and adds documentation for it.

A shadow-banned users receives successful responses to their
client-server API requests, but the events are not propagated into rooms.

Shadow-banning a user should be used as a tool of last resort and may lead
to confusing or broken behaviour for the client.