Change config files into folders with a file per service

Currently configs are made as one file per target, e.g. `bigbox-v1-cm.json`, this creates 2 issues:

1. Very large config files
2. Frequent merge conflicts when two branches change a common config

To fix both of these issues a config should now be a folder with a file per service. The config service and the capability used by the config service for config loading need to be edited for this change

Start by locating the config service and the capability it uses for config loading, then trace how target config files such as bigbox-v1-cm.json are discovered and read. Refactor that loading path to support a folder containing one file per service, and verify that large configs and concurrent service changes no longer require a shared file.

Written by the indexing model from the issue text.