Make break command honor new designation of sanctuaries

Breaking sanctuary turns 100% sanctuaries into capitals, all others
into highways.  Before Empire 3, sanctuaries always became capitals.

Give deities more control over initial state of countries than
choosing between 100% capital and <100% highway sectors: turn
sanctuaries into their new designation on break.  Except make a
capital when the new designation is sanctuary (which it normally is).