(PE- 6014) Create NOOP CA service

should probably get some additional input on this, but I don't think we should be testing this service in bootstrap_test.  In my mind, that test just exists to validate that we can start the server in the normal mode that we will be using during development, so this doesn't really qualify.

Also, the 'dev' directory was separated out from 'dev-resources' to try to keep all of the test-fixture-y resource files in `dev-resources`, and use `dev` to contain files that are not related to tests but are used by developers during, um, development. :)  So this seems like we're blurring those lines again...