Allow configuration file to be specified via --config-file

Additionally - Allows Moniker to run when no configuration file is found, using the defaults.

Fixes bug #1083331

Change-Id: Ie7659db7c873ae1ba47a29d160a0fb73739dbeb0
Fixup default policy.json

Change-Id: I8c71e83d5ebfdda67c985276115513b81e1a84bb