Change newcap back to not wiping the country

Change newcap back to not wiping the country

Just create sanctuaries, put country into STAT_SANCT, grant BTUs and
money, set origin and initial realms.

This reverts commit e1a68c72 (v4.3.12) as far as newcap is concerned.
Except we still set nat_access, because that needs to be set along
with nat_btu.

Additionally, leave levels and telegrams alone.

Should have no effect in practice, because newcap works only in
STAT_NEW, and we get there with the add command, which wipes the
country.