mm, vmscan: Have kswapd reclaim from all zones if reclaiming and buffer_heads_over_limit

The buffer_heads_over_limit limit in kswapd is inconsistent with direct
reclaim behaviour.  It may force an an attempt to reclaim from all zones
and then not reclaim at all because higher zones were balanced than
required by the original request.

This patch will causes kswapd to consider reclaiming from all zones if
buffer_heads_over_limit.  However, if there are eligible zones for the
allocation request that woke kswapd then no reclaim will occur even if
buffer_heads_over_limit.  This avoids kswapd over-reclaiming just
because buffer_heads_over_limit.

[mgorman@techsingularity.net: fix comment about buffer_heads_over_limit]
  Link: http://lkml.kernel.org/r/1468404004-5085-2-git-send-email-mgorman@techsingularity.net
Link: http://lkml.kernel.org/r/1467970510-21195-28-git-send-email-mgorman@techsingularity.net


Signed-off-by: Mel Gorman <mgorman@techsingularity.net>
Cc: Hillf Danton <hillf.zj@alibaba-inc.com>
Acked-by: Johannes Weiner <hannes@cmpxchg.org>
Acked-by: Vlastimil Babka <vbabka@suse.cz>
Cc: Joonsoo Kim <iamjoonsoo.kim@lge.com>
Cc: Michal Hocko <mhocko@kernel.org>
Cc: Minchan Kim <minchan@kernel.org>
Cc: Rik van Riel <riel@surriel.com>
Signed-off-by: Andrew Morton <akpm@linux-foundation.org>
Signed-off-by: Linus Torvalds <torvalds@linux-foundation.org>