Add initial governance draft.

GOVERNANCE.md

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+# mlpack governance structure (DRAFT)
+
+Revised Oct. 21st, 2019.
+
+## Introduction
+
+mlpack has grown much since its initial inception as a small project out of a
+university research lab.  Now that there are over 150 contributors, it's
+important that we have a clearly defined process for making our decisions and
+organizing ourselves.
+
+This document aims to clarify the governance of mlpack.  This is a living
+document: it may change over time.  The process for making these changes is
+detailed in the "Governance Changes" section.
+
+## Code of Conduct
+
+mlpack aims to be an open and welcoming environment, and as such, we have a
+code of conduct that helps foster this environment.  See
+(here)[https://github.com/mlpack/mlpack/blob/master/CODE_OF_CONDUCT.md] for
+more information.
+
+## Teams & Roles
+
+To keep overhead minimal, mlpack's teams and roles are simple: there is only
+the [Committers](https://github.com/orgs/mlpack/teams/contributors) team, and
+the [NumFOCUS leadership team](TODO:link).
+
+Members of the Committers team have commit access to all mlpack repositories
+and help guide the development directions and goals of mlpack.  Committers
+should be familiar with the [contribution
+process](https://github.com/mlpack/mlpack/blob/master/CONTRIBUTING.md) and
+follow it when merging code and reviewing pull requests; this is important for
+the continued stability and quality of mlpack's codebase.  Responsibilities and
+activities of Committers team members can include:
+
+ * Welcoming new members to the community: helping support users and point
+   potential contributors in the correct direction.
+
+ * Reviewing pull requests and approving them when they are ready.
+
+ * Merging pull requests after they have been approved by others for merge.
+
+ * Communicating and coordinating with contributors to help get code merged and
+   improve the software.
+
+ * Helping map out mlpack's development directions and processes.
+
+ * Maintaining mlpack infrastructure (build systems, continuous integration,
+   etc.).
+
+Membership on the Committers team does not expire.  Contributors who have
+repeatedly shown that their code quality is high, demonstrated adherence to the
+code of conduct, and shown that they have a strong interest in the project can
+be added to the Committers team using the organizational decision process in
+the next section.
+
+The NumFOCUS leadership team is a subset of the Committers team whose
+additional responsibilities are to coordinate with NumFOCUS and maintain this
+governance document.  Membership in the NumFOCUS leadership team is limited to
+five people, and does not confer any special voting power or decision rights.
+
+## Voting and Organizational Decisions
+
+Historically, mlpack organizational decisions have not been controversial and
+this has allowed efficient decision making.  Therefore, a vote on a proposal is
+not required unless there is any explicit disagreement or concern with the
+proposal.  The topics of a proposal might be:
+
+ * Adding/removing a new member to/from the Committers team.
+
+ * Participating in a program such as Google Summer of Code or Outreachy.
+
+ * A change to some part of the mlpack infrastructure or contribution process.
+
+ * Refactoring or change of an important public part of the API.
+
+ * Use of funds for a particular project.
+
+That list is not inclusive.  Introducing a proposal or idea can be done
+informally in a public place, such as the mlpack mailing list or on Github as
+an issue.  It's a good idea (but not mandatory) to make the proposal discussion
+fully public so that people who are not on the Committers team can also comment
+and provide opinions---after all, this is a community-led project so we should
+be sure to include the *entire* community whenever possible.
+
+If there is any disagreement or concern with the proposal, the person who
+introduced the proposal should work to try and find a resolution or compromise
+if possible.  If that is not possible, then the proposal can be brought to a
+vote.
+
+For a proposal to pass, a simple majority vote suffices.  Each Committer has
+one equal vote, and they may choose to abstain from voting if they do prefer.
+Since some Committers may be inactive or busy, it is not required for every
+Committer to participate in every vote; instead, someone who has a proposal
+should make a good-faith effort to post the proposal in a public location so
+that interested and active Committers can respond.  Voting for any proposal
+should be open for at least five days to allow sufficient time.
+
+If a proposal passes despite votes against it, it is generally a good idea for
+the Committer who introduced the proposal to spend some time considering and
+understanding the arguments that were presented against the proposal, or if
+appropriate, for the Committer to try and find an acceptable compromise or
+alternate strategy that addresses the given feedback.
+
+## Governance Changes
+
+The NumFOCUS leadership team is responsible for this governance document, and
+thus any changes to this document, NumFOCUS membership, or the NumFOCUS
+leadership team must be approved by that team, also by a simple majority vote.
+Because every member of the NumFOCUS leadership team should be an active
+Committer, any proposal requires votes (or abstentions) by all five members.