[w3c/webpayments] PROPOSAL: A new document structure for this API (#134)

Migrated from https://github.com/w3c/browser-payment-api/issues/138

There are a number of issues raised and comments made about the need to explicitly define the role of payment mediator and user agent. I propose that we separate the current API spec into a spec defining the conformance criteria for a payment mediator and a spec defining conformance criteria for a user agent in it's role as a payment mediator but also in its role as data collection service to optimize the checkout flow.

## Proposal

 1. Create a new payment mediator specification that defines the conformance criteria for any mediator (not just a user agent in this role).
 1. Migrate the appropriate elements of the API specification into this new specification.
 1. Make the new specification a normative dependency of the API specification.
 1. Update the API specification so that it describes the conformance criteria of a user agent in assuming two roles:
    1. Payment mediator (as defined in the payment mediator spec)
    1. Data collection mediator for collection of data to optimize the checkout flow.

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