Address #16502 review

[georgeee]

During review of #16502 (initially #16186) @mrmr1993 raised a few concerns.

Some of these are fixed in this PR. Mostly refactoring, the only two changes that change behavior are:

• Legacy -config-file no longer supported for majority of utilities (only for mina node where it was for historical reasons)
• Application delegation_verify exits with code 4 on failure to read the config file (restoring previous behavior)

Checklist:

• Dependency versions are unchanged
  • Notify Velocity team if dependencies must change in CI
• Modified the current draft of release notes with details on what is completed or incomplete within this project
• Document code purpose, how to use it
  • Mention expected invariants, implicit constraints
• Tests were added for the new behavior
  • Document test purpose, significance of failures
  • Test names should reflect their purpose
• All tests pass (CI will check this if you didn't)
• Serialized types are in stable-versioned modules
• Does this close issues? None

[georgeee]

!ci-build-me