Enforce that the build and run base are the same* base
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Issue body
### What needs to get done
With certain exceptions, `build-base` and `base` should not be able to differ from each other. `build-base` is thus optional but must match `base`.
Currently known exceptions:
- `base: bare` allows any build base, but it requires `build-base` to be defined.
- Any in-development base must be matched with its appropriate build-base. (Craft Application provides those mappings, but the app can apply supplemental mappings. An in-development base is defined as one that exists in either of those mappings.)
- An app may implement a method that provides specific overrides, but the use of this method is discouraged and only there for legacy purposes
### Why it needs to get done
Currently apps are enforcing this (or not enforcing it) ad-hoc. We should move to this being strictly enforced with the app being able to loosen those requirements if needed.
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