[whatwg/encoding] Encode hook not adequate (#235)

While working on https://github.com/whatwg/url/issues/557 I realized that the URL standard will have to invoke the Encoding Standard at a lower level of abstraction as it needs to deal with erroneous output (`&#...;`) differently from non-erroneous output. I.e., an error that results in `&#...;` might have to be percent-encoded, but a non-error `&#...;` sequence might not have to be.

So URL basically wants to invoke the encoder's handler directly I think. I don't really see a better abstraction as it needs to deal with errors in a very different way. I suppose we could make error handling a caller defined set of steps, but I don't really like the complexity of that.

`text/plain` form submission could in theory still use the current high-level encode hook, but I'm not sure it's worth saving just for that.

It also seems there's potentially quite a lot of other potential cleanup that would result from this (e.g., https://encoding.spec.whatwg.org/#concept-encoding-process no longer needs to handle "html").

Having "html" in the Encoding standard as well as this high-level hook was intentional as a way of limiting the amount of badness that could be introduced by consumers, but we will have to use review rather than abstractions for that instead (UTF-8 or die). It's unfortunate, but it might also make the Encoding standard a little leaner.

cc @andreubotella @hsivonen @achristensen07 @JKingweb 

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