pg_restore restores privileges differently from psql

I'm restoring the schema from one database (prod) to another (dev). There are users that exist in prod that don't exist in dev. When the restore job tries to grant privileges to nonexistent users in dev, I would like it to generate an error, which is safe to ignore, but still correctly grant privileges to any user that does exist in dev.

That's the behavior I see when I dump to a plain file and restore it using psql -f, but not the behavior I see when I do a pg_dump -Fc followed by pg_restore. pg_restore seems to treat all the GRANT statements for a single object as a single statement, and when one errors out, they all error out, meaning I'm left with no privileges on the object in question.

For instance, when this appears in my plaintext file:

GRANT ALL ON SCHEMA test TO user1;

GRANT USAGE ON SCHEMA test TO user2;

GRANT USAGE ON SCHEMA test TO user3;

and user1 doesn't exist on the target database, user2 and user3 get the expected privileges when restoring from psql but not from pg_restore.

Here's a reproducible test case.

CREATE DATABASE prod_db;

CREATE DATABASE dev_db_psql;

CREATE ROLE prod_user;

CREATE ROLE prod_and_dev_user;

-- in prod_db

CREATE SCHEMA test;

GRANT ALL ON SCHEMA test TO prod_user;

pg_dump -Fc prod_db &> prod_dump.bin

-- On database instance containing the dev dbs.

DROP ROLE prod_user;

pg_restore prod_dump.bin -d dev_db_pg_restore

psql -d dev_db_psql -f prod_dump.sql

-- In dev_db_pg_restore

SELECT has_schema_privilege('prod_and_dev_user', 'test', 'usage');

Expected result: true
Actual result: false

The behavior seems to be related to the fact that pg_restore reports the failed command as containing all the semicolon-delimited privilege command, which get executed separately when restoring from plaintext:

As a workaround, I've created a unprivileged dummy user by this name on the dev database, but my question is, is this a bug or feature? If a feature, is the behavior documented? I didn't find any documentation, but that doesn't mean it doesn't exist.

Thanks,

Sherrylyn