While working on https://github.com/matrix-org/synapse/issues/5665 I found myself digging into the `Ratelimiter` class and seeing that it was both:
* Rather undocumented, and
* causing a *lot* of config checks
This PR attempts to refactor and comment the `Ratelimiter` class, as well as encourage config file accesses to only be done at instantiation.
Best to be reviewed commit-by-commit.
