Improve the bootstrap process slightly:
- If upon startup the catalog is not available, diagnose why:
  + If there is a communications link failure, assume that the url is wrong and abort startup.
  + If the catalog cannot be found, assume that the catalog is empty and create a bootstrap catalog.
- Add the ability to create a bootstrap catalog.  The bootstrap catalog has the information schemas,
  and the system group.  No other persistent groups are created.  We create a bootstrap dynamic policy
  with a single dynamic site (on the catalog url).
Merge branch 'master' into kanzaros_bootstrap