[semantics] Add support for annotating VarDecls with @_semantics. #28100
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This is just for prototyping purposes. I also had to loosen a small restriction
where semantics functions were not allowed in local contexts. There really is no
reason to enforce this and I think since it came in the first commit that
introduced semanitcs it was most likely NadavR just being conservative and
careful.
Another small patch pushing this forward on the bus.