Set max_safe_fds whenever we create shared memory and semaphores.

Formerly we skipped this in bootstrap/check mode and in single-user
mode.  That's bad in check mode because it may allow accepting a
value of max_connections that doesn't actually work: on platforms
where semaphores consume file descriptors, there may not be enough
free FDs left over to satisfy fd.c, causing postmaster start to
fail.  It's also not great in single-user mode, because fd.c will
operate with just the minimum allowable value of max_safe_fds,
resulting in excess file open/close overhead if anything moderately
complicated is done in single-user mode.  (There may be some penalty
for bootstrap mode too, though probably not much.)

Discussion: https://postgr.es/m/2081982.1734393311@sss.pgh.pa.us

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