change the config merge/load order

[emphasize]

This changes the load/merge order to:
USER > SYSTEM > REMOTE > DEFAULT

[JarbasAl]

see MycroftAI/mycroft-core#2861

not sure how this bug made it over here as it was extensively discussed an unwanted to make remote > system

[codecov]

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[emphasize]

not sure how this bug made it over here as it was extensively discussed an unwanted to make remote > system

additionally, the former test masked the problem

[NeonDaniel]

Looks good to me and tested to work under a recent Neon image. Unit test failures are related to a setuptools vulnerability and out of scope of this PR

[ChanceNCounter]

Looks right, I remember the original discussion, I concur it’s needed and Daniel has manually tested.