The custom.conf file grants sudo privileges to user1 and webadmin for managing the Apache web service, but it uses different commands for each of them. User1 is allowed to use systemctl to start and stop the httpd service, while webadmin is allowed to use init.d, service, or apache2ctl to restart the httpd service. However, the user1 is unable to restart the service, only start and stop it. To fix this, user1 should be able to use the same commands as webadmin, which can be achieved by listing webadmin as a group in the custom.conf file, using the syntax %groupname. This way, user1 will inherit the sudo privileges of the webadmin group, and be able to restart the Apache web service without compromising the least privilege security model.
References
* Sudo and Sudoers Configuration | Servers for Hackers, section "Groups"
* Chapter 12. Managing sudo access - Red Hat Customer Portal, section "12.1. Configuring sudo access for users and groups"