Move abstract code related to struct gov_attr_set to a separate (new)
file so it can be shared with (future) goverernors that won't share
more code with "ondemand" and "conservative".

No intentional functional changes.
Signed-off-by: NRafael J. Wysocki <rafael.j.wysocki@intel.com>
Acked-by: NViresh Kumar <viresh.kumar@linaro.org>