Unbundle governance voting power from consensus voting power

[gavinly]

I'd love for two new things to be possible:

1. Arbitrary governance voting power delegation
2. Governance bond outside of PoS (proof of stake)

These could involve big changes. I've made this issue to get feedback on the technical challenges involved in implementing this, before I dig deeper into details or seek broader community feedback.

Delegator impact

As a delegator, I may have confidence in the validator's consensus operations, but not in their governance operations. I should be able to delegate my governance power to a different validator, and ideally to any address, even if it's not a validator. The main questions I foresee arising are about a) added complexity to the UI / UX and b) potential proposal quorum challenges.

Validator impact

As a validator operator, I may not want to engage in governing the protocol--I should be able to set a flag that declines governance delegations.

Community impact

For our community, decision-making could be improved, since delegators wouldn't have to decide between operational ability and protocol or community decision-making alignment, and a validator growing their business doesn't have to assume responsibility for protocol and community decision-making.

Downstream impact

We should also NAM bonding outside of PoS, ie. purely for governance purposes. This could enable participants to govern without staking. For example, a connected/partnered community could use NAM in their on-chain treasury to vote in Namada governance without having to manage a validator or selecting validators to delegate to.