build_meta:__legacy__ config_settings not compatible with pip options

# Summary

Running `pip wheel --global-option ARG` calls `setup.py ARG bdist_wheel`, but running `setuptools.build_meta.build_wheel(config_settings={"--global-option": ["ARG"]})` calls `setup.py bdist_wheel ARG`! Can we make pip and setuptools behave the same?

# Details

`setuptools.build_meta:__legacy__` (I will drop `__legacy__` since it is just a wrapper around `build_meta`) supports the `--global-option` value in `config_settings`, but places it at a different location in constructed `setup.py` invocations than pip does. pip supports a `--build-option` parameter for post-command args, which matches the current `setuptools.build_meta` `--global-option` behavior.

This can be shown with the following script

<details>
<summary>t.sh</summary>

```
#!/bin/sh

cd "$(mktemp -d)"

python -V

echo ============== Installing prereqs ==============
python -m venv env
./env/bin/python -m pip install --upgrade pip setuptools wheel pep517
./env/bin/python -m pip freeze --all

cat <<EOF > setup.py
import sys
from setuptools import setup
print(sys.argv)
setup(name="example")
EOF

echo ============== Running pip wheel ==============
./env/bin/python -m pip wheel \
    --disable-pip-version-check \
    --global-option --quiet \
    --build-option --plat-name=foo \
    -v .

cat <<EOF > pyproject.toml
[build-system]
requires = ["setuptools"]
build-backend = "setuptools.build_meta:__legacy__"
EOF

# invoke backend directly because pip doesn't currently support
# `config_settings` (see pypa/pip#5771)
cat <<EOF > build.py
from pep517.envbuild import build_wheel

config_settings = {
    "--global-option": ["--quiet"],
    "--build-option": ["--plat-name=foo"],
}

build_wheel(".", ".", config_settings)
EOF

echo ============== Running setuptools.build_meta ==============
./env/bin/python build.py
```

</details>

Here is the output of the script on my machine (Ubuntu 18.04, Python 3.8.0)

<details>
<summary>Output</summary>

```
Python 3.8.0
============== Installing prereqs ==============
Collecting pip
  Using cached https://files.pythonhosted.org/packages/00/b6/9cfa56b4081ad13874b0c6f96af8ce16cfbc1cb06bedf8e9164ce5551ec1/pip-19.3.1-py2.py3-none-any.whl
Collecting setuptools
  Using cached https://files.pythonhosted.org/packages/54/28/c45d8b54c1339f9644b87663945e54a8503cfef59cf0f65b3ff5dd17cf64/setuptools-42.0.2-py2.py3-none-any.whl
Collecting wheel
  Using cached https://files.pythonhosted.org/packages/00/83/b4a77d044e78ad1a45610eb88f745be2fd2c6d658f9798a15e384b7d57c9/wheel-0.33.6-py2.py3-none-any.whl
Collecting pep517
  Using cached https://files.pythonhosted.org/packages/f4/9b/82910c0f01f29c7bdd8fc4306ed03e1742256612e2cfca8f05ebb21958ab/pep517-0.8.1-py2.py3-none-any.whl
Collecting toml (from pep517)
  Using cached https://files.pythonhosted.org/packages/a2/12/ced7105d2de62fa7c8fb5fce92cc4ce66b57c95fb875e9318dba7f8c5db0/toml-0.10.0-py2.py3-none-any.whl
Installing collected packages: pip, setuptools, wheel, toml, pep517
  Found existing installation: pip 19.2.3
    Uninstalling pip-19.2.3:
      Successfully uninstalled pip-19.2.3
  Found existing installation: setuptools 41.2.0
    Uninstalling setuptools-41.2.0:
      Successfully uninstalled setuptools-41.2.0
Successfully installed pep517-0.8.1 pip-19.3.1 setuptools-42.0.2 toml-0.10.0 wheel-0.33.6
pep517==0.8.1
pip==19.3.1
setuptools==42.0.2
toml==0.10.0
wheel==0.33.6
============== Running pip wheel ==============
/tmp/user/1000/tmp.wXBXX6X4IO/env/lib/python3.8/site-packages/pip/_internal/commands/wheel.py:115: UserWarning: Disabling all use of wheels due to the use of --build-options / --global-options / --install-options.
  cmdoptions.check_install_build_global(options)
Created temporary directory: /tmp/user/1000/pip-ephem-wheel-cache-prtj7mer
Created temporary directory: /tmp/user/1000/pip-req-tracker-9vt687l5
Created requirements tracker '/tmp/user/1000/pip-req-tracker-9vt687l5'
Created temporary directory: /tmp/user/1000/pip-wheel-2cug6fql
Processing /tmp/user/1000/tmp.wXBXX6X4IO
  Created temporary directory: /tmp/user/1000/pip-req-build-ukgu7746
  Added file:///tmp/user/1000/tmp.wXBXX6X4IO to build tracker '/tmp/user/1000/pip-req-tracker-9vt687l5'
    Running setup.py (path:/tmp/user/1000/pip-req-build-ukgu7746/setup.py) egg_info for package from file:///tmp/user/1000/tmp.wXBXX6X4IO
    Running command python setup.py egg_info
    ['/tmp/user/1000/pip-req-build-ukgu7746/setup.py', 'egg_info', '--egg-base', '/tmp/user/1000/pip-req-build-ukgu7746/pip-egg-info']
    running egg_info
    creating /tmp/user/1000/pip-req-build-ukgu7746/pip-egg-info/example.egg-info
    writing /tmp/user/1000/pip-req-build-ukgu7746/pip-egg-info/example.egg-info/PKG-INFO
    writing dependency_links to /tmp/user/1000/pip-req-build-ukgu7746/pip-egg-info/example.egg-info/dependency_links.txt
    writing top-level names to /tmp/user/1000/pip-req-build-ukgu7746/pip-egg-info/example.egg-info/top_level.txt
    writing manifest file '/tmp/user/1000/pip-req-build-ukgu7746/pip-egg-info/example.egg-info/SOURCES.txt'
    reading manifest file '/tmp/user/1000/pip-req-build-ukgu7746/pip-egg-info/example.egg-info/SOURCES.txt'
    writing manifest file '/tmp/user/1000/pip-req-build-ukgu7746/pip-egg-info/example.egg-info/SOURCES.txt'
  Source in /tmp/user/1000/pip-req-build-ukgu7746 has version 0.0.0, which satisfies requirement example==0.0.0 from file:///tmp/user/1000/tmp.wXBXX6X4IO
  Removed example==0.0.0 from file:///tmp/user/1000/tmp.wXBXX6X4IO from build tracker '/tmp/user/1000/pip-req-tracker-9vt687l5'
Building wheels for collected packages: example
  Created temporary directory: /tmp/user/1000/pip-wheel-zvwa52k1
  Building wheel for example (setup.py) ...   Destination directory: /tmp/user/1000/pip-wheel-zvwa52k1
  Running command /tmp/user/1000/tmp.wXBXX6X4IO/env/bin/python -u -c 'import sys, setuptools, tokenize; sys.argv[0] = '"'"'/tmp/user/1000/pip-req-build-ukgu7746/setup.py'"'"'; __file__='"'"'/tmp/user/1000/pip-req-build-ukgu7746/setup.py'"'"';f=getattr(tokenize, '"'"'open'"'"', open)(__file__);code=f.read().replace('"'"'\r\n'"'"', '"'"'\n'"'"');f.close();exec(compile(code, __file__, '"'"'exec'"'"'))' --quiet bdist_wheel -d /tmp/user/1000/pip-wheel-zvwa52k1 --plat-name=foo
  ['/tmp/user/1000/pip-req-build-ukgu7746/setup.py', '--quiet', 'bdist_wheel', '-d', '/tmp/user/1000/pip-wheel-zvwa52k1', '--plat-name=foo']
done
  Created wheel for example: filename=example-0.0.0-py3-none-foo.whl size=991 sha256=2ba2632248ed833ce1744288e2b271aed52d917c9e5e513c1bca6ab86ae9b6c3
  Stored in directory: /tmp/user/1000/tmp.wXBXX6X4IO
Successfully built example
Cleaning up...
  Removing source in /tmp/user/1000/pip-req-build-ukgu7746
Removed build tracker '/tmp/user/1000/pip-req-tracker-9vt687l5'
============== Running setuptools.build_meta ==============
['/tmp/user/1000/tmp.wXBXX6X4IO/env/lib/python3.8/site-packages/pep517/_in_process.py', 'egg_info', '--quiet']
running egg_info
creating example.egg-info
writing example.egg-info/PKG-INFO
writing dependency_links to example.egg-info/dependency_links.txt
writing top-level names to example.egg-info/top_level.txt
writing manifest file 'example.egg-info/SOURCES.txt'
reading manifest file 'example.egg-info/SOURCES.txt'
writing manifest file 'example.egg-info/SOURCES.txt'
['/tmp/user/1000/tmp.wXBXX6X4IO/env/lib/python3.8/site-packages/pep517/_in_process.py', 'bdist_wheel', '--dist-dir', '/tmp/user/1000/tmp.wXBXX6X4IO/tmpdhxoqdx2', '--quiet']
running bdist_wheel
running build
installing to build/bdist.linux-x86_64/wheel
running install
running install_egg_info
running egg_info
writing example.egg-info/PKG-INFO
writing dependency_links to example.egg-info/dependency_links.txt
writing top-level names to example.egg-info/top_level.txt
reading manifest file 'example.egg-info/SOURCES.txt'
writing manifest file 'example.egg-info/SOURCES.txt'
Copying example.egg-info to build/bdist.linux-x86_64/wheel/example-0.0.0-py3.8.egg-info
running install_scripts
creating build/bdist.linux-x86_64/wheel/example-0.0.0.dist-info/WHEEL
creating '/tmp/user/1000/tmp.wXBXX6X4IO/tmpdhxoqdx2/example-0.0.0-py3-none-any.whl' and adding 'build/bdist.linux-x86_64/wheel' to it
adding 'example-0.0.0.dist-info/METADATA'
adding 'example-0.0.0.dist-info/WHEEL'
adding 'example-0.0.0.dist-info/top_level.txt'
adding 'example-0.0.0.dist-info/RECORD'
removing build/bdist.linux-x86_64/wheel
```

</details>

Note that with the pip invocations, the args are:

```
['/tmp/user/1000/pip-req-build-ukgu7746/setup.py', 'egg_info', '--egg-base', '/tmp/user/1000/pip-req-build-ukgu7746/pip-egg-info']
['/tmp/user/1000/pip-req-build-ukgu7746/setup.py', '--quiet', 'bdist_wheel', '-d', '/tmp/user/1000/pip-wheel-zvwa52k1', '--plat-name=foo']
```

whereas invoking `setuptools.build_meta` results in

```
['/tmp/user/1000/tmp.wXBXX6X4IO/env/lib/python3.8/site-packages/pep517/_in_process.py', 'egg_info', '--quiet']
['/tmp/user/1000/tmp.wXBXX6X4IO/env/lib/python3.8/site-packages/pep517/_in_process.py', 'bdist_wheel', '--dist-dir', '/tmp/user/1000/tmp.wXBXX6X4IO/tmpdhxoqdx2', '--quiet']
```

The differences:

1. passing `--global-option`s to `setup.py egg_info`
   1. pip doesn't do this - it is tracked by pypa/pip#4383
   2. `setuptools.build_meta` passes them after `egg_info`
1. passing `--global-option`s to `setup.py bdist_wheel`
   1. pip places them before `bdist_wheel`
   2. `setuptools.build_meta` places them after `bdist_wheel`
1. passing `--build-option`s to `setup.py bdist_wheel`
   1. pip places them after `bdist_wheel`
   2. `setuptools.build_meta` does not use this value

For where in code this is happening, see:

* `setuptools.build_meta` [here](https://github.com/pypa/setuptools/blob/1d03fdc94c3676a5b675ec7d818d48c6a772fb49/setuptools/build_meta.py#L191-L193), where `config_settings["--global-option"]` comes after the command name
* pip [here](https://github.com/pypa/pip/blob/59289f58f82a60389d3d4d8852e2337460c75125/src/pip/_internal/utils/setuptools_build.py#L43-L44) and [here](https://github.com/pypa/pip/blob/59289f58f82a60389d3d4d8852e2337460c75125/src/pip/_internal/utils/setuptools_build.py#L62-L67), where we create the initial set of arguments followed by the name of the command followed by `build_options`

We would like to eventually transition away from having setuptools-specific code in pip by e.g. delegating to the legacy backend (pypa/pip#5204). In that context, can we discuss how to resolve these differences and pass the arguments to the backend appropriately?

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build_meta:legacy config_settings not compatible with pip options #1928

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build_meta:__legacy__ config_settings not compatible with pip options #1928

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build_meta:legacy config_settings not compatible with pip options #1928