chore: add CODEOWNERS file

[nearlyforget]

Description

Add CODEOWNERS file with ownership Logic:

• Default: @Universal-Commerce-Protocol/maintainers
• Protocol/Spec: @Universal-Commerce-Protocol/tech-council
• Capabilities/Extensions: @Universal-Commerce-Protocol/tech-council & maintainers
• Governance: @Universal-Commerce-Protocol/governance-council
• Infrastructure: @Universal-Commerce-Protocol/devops-maintainers

Type of change

Please delete options that are not relevant.

• Documentation update

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Checklist

• My code follows the style guidelines of this project
• I have performed a self-review of my own code
• I have commented my code, particularly in hard-to-understand areas
• I have made corresponding changes to the documentation
• My changes generate no new warnings
• I have added tests that prove my fix is effective or that my feature works
• New and existing unit tests pass locally with my changes
• Any dependent changes have been merged and published in downstream modules

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[ptiper]

Can we order from lowest level to highest level of governance, since "the last matching pattern takes the most precedence" in CODEOWNERS?

[ptiper]

Won't these be in .github now?