Tests that call on_configure without a successful on_init

[tylerjw]

In writing PRs for the parameter change I realized that many tests depend on being able to call on_configure before ever calling on_init or when they have called on_init and it has failed. Here is an example:

https://github.com/ros-controls/ros2_controllers/blob/4138b734c3c1389fd715408ead3d24485d3e4c25/joint_state_broadcaster/test/test_joint_state_broadcaster.cpp#L156