ConfigurationPacket assumes that the payload data is owned by someone
else. For frame data, that is generally true. For initialization and
finalization sequences, those payloads need to be created and managed.
Instead, dynamically allocate packets which allows for using subclasses
of ConfigurationPacket that store the payload with the packet.
Signed-off-by: Rick Altherr <kc8apf@kc8apf.net>