forrest actually my file root is setup not dev so here it is.

top.sls

base:
  '*':
    - agn_openstack.agn_keystone
    - agn_openstack.agn_glance

setup:
  '*':
    - etc.glance


/etc/salt/master

file_roots:
  base:
    - /srv/salt/base
  setup:
    - /srv/salt/setup