doc: initial GOVERNANCE.md

Signed-off-by: Beth Griggs <bethanyngriggs@gmail.com>

GOVERNANCE.md

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+The Backstage Community Plugins project area is governed according to the model specified in the [GOVERNANCE.md](https://github.com/backstage/backstage/blob/master/GOVERNANCE.md) file located in the `backstage/backstage` repository. We encourage all contributors and maintainers to review these guidelines to understand their roles and responsibilities.
+
+# Governance Roles
+
+The governance of this repository is managed by specific roles:
+
+* [Community Plugins Area Owners](https://github.com/backstage/backstage/blob/master/OWNERS.md#community-plugins)
+* [Plugin Maintainers](https://github.com/backstage/backstage/blob/master/GOVERNANCE.md#plugin-maintainer)