Break circular dependency record_config.ts <-> state.ts

Circular dependencies can result in runtime errors, but having
existing ones makes it easy to fail to notice new warnings shown by
Rollup during the build.

Since dependency state.ts -> record_config.ts was needed only to
initialize empty state, its creation was factored out to a new file.

Change-Id: I53597278f2bb408dfdb5670b31168e82eab574f0