feat: implement file-based persistence service

wanshenmean

2026-03-13 0b3d9467bfd081f607c7b17642e6c017aa32678d

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{
  "RoadwayCommandMapping": {
    "HC": "Formation",
    "GW": "Standard",
    "CW": "Standard"
  },
  "DefaultCommandType": "Standard"
}