Expose internal config parameters for starting Ray (#3246)

## What do these changes do?

This PR exposes the CL option for using a config parameter. This is important for certain tests (i.e., FT tests that removing nodes) to run quickly.

Note that this is bad practice and should be replaced with GFLAGS or some equivalent as soon as possible.

#3239 depends on this.

TODO:
 - [x] Add documentation to method arguments before merging.
 - [x] Add test to verify this works?

## Related issue number

java/runtime/src/main/java/org/ray/runtime/runner/RunManager.java

@@ -187,6 +187,7 @@ public class RunManager {
         "0", // number of initial workers
         String.valueOf(maximumStartupConcurrency),
         ResourceUtil.getResourcesStringFromMap(rayConfig.resources),
+        "",  // The internal config list.
         buildPythonWorkerCommand(), // python worker command
         buildWorkerCommandRaylet() // java worker command
     );