bpo-36301: Add _Py_PreInitializeFromConfig() (GH-12536)

bpo-36301: Add _Py_PreInitializeFromConfig() (GH-12536)

* Initialize _PyPreConfig.dev_mode to -1.
* _PyPreConfig_Read(): coreconfig has the priority over preconfig.
* _PyCoreConfig_Read() now calls _PyPreCmdline_Read() internally.
* config_from_cmdline() now pass _PyPreCmdline to config_read().
* Add _PyPreCmdline_Copy().