Adds a resolution for leadership process

Currently we do not have any process for addressing leadership
for a program should no candidates come forward during the
nomination process. This patch proposes a process.

This follows the conversation on the mailing list about this topic:
http://lists.openstack.org/pipermail/openstack-dev/2014-November/050760.html

Change-Id: I28180c5c66c60828fde25b98a72b28c62379c035