Add a method to create a TAP interface without bringing it up. am: 333d5e52f5 am: 40de199169 am: 756a81436d

Original change: https://android-review.googlesource.com/c/platform/packages/modules/Connectivity/+/1987455

Change-Id: I2c406c9bd312d3ef54bc10651de96dabe87cf571