The steps in the proposal process were interleaved in a way
that made following them confusing. This change extracts the
definitions of terms from the actual process and simplifies the
process.
For the most part the spirit of the staged review process is
maintained but the steps required to reach out to the community
are clarified: Where there is consensus we involve just the CPLs.
Where there is not we reach out to the rest of community. I'm not
certain is the correct way to go. It's a compromise between keeping
things moving with minimal friction and including the broader
community as much as possible.
My hope is that this will help to clarify the term "frozen" and
when freezing is to be done.
This will probably require some iteration.
Change-Id: I416ff1dd35249674fb27f9dd7625786e52001556
c3a5ba0b08