Feature Request: Rethink VoteStore and the ValidatorSet management

[charithabandi]

Potential Changes:

• Clear boundaries on who can create resolutions. VoteStore inherently assumes that only voters can create resolutions, but Validator Joins break that rule where a non-validator is a proposer of the join resolution, which is okay, but the internal code should correctly handle these scenarios.
• Decouple Voters from the VoteStore and let consensus engine manage Validators along with other consensus params and make VoteStore the Consumer of the Validator Set rather than the manager.