https://jira.hyperledger.org/browse/FAB-2197



The configtx processing currently performs validation while applying
configuration.  In order to split this process, the config map
construction will need to be used in two different code paths, so this
CR factors it out.

Change-Id: Ib230c3f363d490fb89b83fcd64bf2c9ec4fc67a4
Signed-off-by: Jason Yellick <jyellick@us.ibm.com>