Change config files into folders with a file per service

[rslater-cs]

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