Allow modules to create and send events into rooms (#8479)

This PR allows Synapse modules making use of the `ModuleApi` to create and send non-membership events into a room. This can useful to have modules send messages, or change power levels in a room etc. Note that they must send event through a user that's already in the room.

The non-membership event limitation is currently arbitrary, as it's another chunk of work and not necessary at the moment.