Allow external attachment for intents

[ashok malhotra <ashok.malhotra@oracle.com>]

In addition to policySets, we argue that it should be possible to attach 
intents using the external attachment mechanism
described in the policy spec.  This follows a theme we have been pushing 
for some time, namely, the separation of
policy artifacts from executable code and the SCDL.  We argue that 
policy artifacts should be stored and managed
separately from code and should have their own lifecycle and 
management.  Probably managed by different departments.
It should be possible to change intents and policySets anytime during 
application lifecycle -- even after the application starts to run.

And, of course, there are situations in which the SCDL may not be 
changed or cannot be changed.
Another viewpoint is that you should not have the policy guys mucking 
around with code :-)
and vice versa.
-- 
All the best, Ashok