This commit adds the `index.routing.allocation.prefer._tier` setting to the
`DataTierAllocationDecider`. This special-purpose allocation setting lets a user specify a
preference-based list of tiers for an index to be assigned to. For example, if the setting were set
to:

```
"index.routing.allocation.prefer._tier": "data_hot,data_warm,data_content"
```

If the cluster contains any nodes with the `data_hot` role, the decider will only allow them to be
allocated on the `data_hot` node(s). If there are no `data_hot` nodes, but there are `data_warm` and
`data_content` nodes, then the index will be allowed to be allocated on `data_warm` nodes.

This allows us to specify an index's preference for tier(s) without causing the index to be
unassigned if no nodes of a preferred tier are available.

Subsequent work will change the ILM migration to make additional use of this setting.

Relates to elastic#60848