Modify legal/citations endpoint to return all results

[tmpayton]

What we’re after

We should modify the legal/citations endpoint to behave more like the legal/search endpoint. We should return all results and then paginate through the results. We should also include total_all and total_<doc_type> columns.

Related ticket(s)

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Action item(s)

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Completion criteria

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References/resources/technical considerations

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