docs: Add consolidation policies problem statement

[cnmcavoy]

Fixes #N/A

Description

Split apart from the design in #1433

I split this from #1433 following discussions with the Karpenter devs about how to get this RFC to move forward. This part of the RFC establishes a problem statement about consolidation in order to gather consensus on the problem we want to solve. After merging will work on the design in #1433.

How was this change tested?

By submitting this pull request, I confirm that my contribution is made under the terms of the Apache 2.0 license.

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[coveralls]

Pull Request Test Coverage Report for Build 12381551515

Details

• 0 of 0 changed or added relevant lines in 0 files are covered.
• 9 unchanged lines in 3 files lost coverage.
• Overall coverage decreased (-0.08%) to 81.214%

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Files with Coverage Reduction	New Missed Lines	%
pkg/utils/termination/termination.go	2	92.31%
pkg/controllers/provisioning/scheduling/nodeclaim.go	3	85.64%
pkg/controllers/disruption/consolidation.go	4	88.55%

Totals
Change from base Build 12303032942:	-0.08%
Covered Lines:	9018
Relevant Lines:	11104

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💛 - Coveralls