Ensure that calls to changing the meter controller do not occur more than necessary

[dlongley]

We received a report that a call to create a profile via bedrock-web-profile-manager (ProfileManager.createProfile) can result in a NotAllowedError at the associated meter service (for the EDV meter) even though no other concurrent calls related to the profile are made and there are seemingly no network failures. The error occurs after the meter controller has already been changed. This implies that the call to change the meter controller could be made more than is necessary in situations where that is knowable. This needs to be explored and perhaps additional tests written to ensure it doesn't occur.

[dlongley]

Link to the code that changes the meter controller:

https://github.com/digitalbazaar/bedrock-profile/blob/v22.0.1/lib/profileAgents.js#L573-L603

Notably, changing the KMS meter controller during profile creation is a requirement because a profile's ID is based on a key generated in a keystore -- a keystore which must therefore be created (with a controller) prior to the profile ID's existence. Only once the profile ID exists can it be set as the new controller for the keystore. To ensure the profile creation process is as speedy and parallelized as possible, the EDV meter for the profile goes through a similar process:

https://github.com/digitalbazaar/bedrock-profile/blob/v22.0.1/lib/profileAgents.js#L403-L408

The expectation is that we should be able to largely avoid seeing an error that is produced when two processes compete over completing the creation of a profile (and both try to change the controller resulting in a conflict). The design is such that an error isn't a problem when it occurs -- but ideally we wouldn't see it in most cases, and if we do see it in a log, developers should be able to tell if it's a real problem or not (and again, we'd probably never expect it to be a real problem).