Merge pull request #260 from shenrie/master

Refactored governance functions in base agents and pushed support functions into governance controller
Updates ion-definitions and renames DataSet->Dataset
Merge pull request #261 from lukecampbell/dataset_refactor

Updates ion-definitions and renames DataSet->Dataset
Actually creates the dir tree
Merge pull request #262 from lukecampbell/file_sys_fix

Actually creates the dir tree
Added a new helper object for message header values