[BBR]: patch6 - integrate BBR config loader into CLI with --config-file flag

[gyliu513]

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/kind feature
Patch 6 for #2370

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[k8s-ci-robot]

[APPROVALNOTIFIER] This PR is NOT APPROVED

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[nirrozenbaum]

/hold
just to make sure we don’t introduce bbr config loader just before we cut a release.