Add Spec Backlog

This is copying what has been done for keystone:
If546724fd535db7753a372389c3f90f3b060d9bc

We add a place for people to add rough ideas, and a place to put specs
that are no longer going to be implemented by the proposer.

Includes updating the README to tell people where the backlog specs will
live.

We need to add a backlog spec before we can complete this change, this
is just a placeholder to advertise the backlog idea.

Change-Id: I667acfa422ef78bdc80efb279911091116b1c1f0

README.rst

@@ -25,6 +25,21 @@ given release should only refer to the ``implemented`` directory.
 
 You can find an example spec in ``specs/template.rst``.
 
+Additionally, we allow the proposal of specifications that do not have a
+developer assigned to them. These are proposed for review in the same manner as
+above, but are added to::
+
+  specs/backlog/approved
+
+Specifications in this directory indicate the original author has either
+become unavailable, or has indicated that they are not going to implement the
+specification. The specifications found here are available as projects for
+people looking to get involved with Nova. If you are interested in
+claiming a spec, start by posting a review for the specification that moves it
+from this directory to the next active release. Please set yourself as the new
+`primary assignee` and maintain the original author in the `other contributors`
+list.
+
 Specifications are proposed for a given release by adding them to the
 ``specs/<release>`` directory and posting it for review.  The implementation
 status of a blueprint for a given release can be found by looking at the

doc/source/index.rst

@@ -28,6 +28,14 @@ Here you can find the specs, and spec template, for each release:
    specs/kilo/index
    specs/juno/index
 
+There are also some partial specifications that can be found here:
+
+.. toctree::
+   :glob:
+   :maxdepth: 1
+
+   specs/backlog/index
+
 Process
 =======
 

doc/source/specs/backlog/index.rst

@@ -0,0 +1,17 @@
+===========================
+Nova Backlog Specifications
+===========================
+
+If you have a problem that needs solving, but you are not currently planning
+on implementing it, this is the place we can store your ideas.
+
+These specifications have the problem description completed, but all other
+sections are optional.
+
+Here is the current template:
+
+.. toctree::
+   :maxdepth: 1
+
+   Specification Template (Kilo) <../kilo/template>
+.. backlog/approved/*