api: change infra roles to grants-based roles

[ssoroka]

Is your feature request related to a problem? Please describe.

Infra roles are currently hard-coded things that exist in the codebase. This deprives us of an opportunity to use the grant system for grant-based roles––that we expect users to use––and use the opportunity to learn from it and improve the authorization system.

Describe the solution you'd like

The grants system supports defining roles as grants.

• permissions can be defined as grants. define those permissions.
• Define Infra roles as grants composed of permissions.
• use the grants system to answer questions about whether users have access to specific resources, rather than whether they have a specific role.

Additional context

I'll write up some docs on how I see permission and role definitions working as grant declarations.

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