Add policy titles

[gregjd]

Those can be a combination of:

• custom legal means (Local Law)
• specific identifiers (Local Law 11, Executive Order 2016-1)
• specific names (Open and Protected Data Policy)

This will eliminate the need for the legal_custom field, as well as the titles that are sometimes found at the top of policy text.

Something that should happen alongside this is filling in the standardized legal means for all policies.

[gregjd]

Method to get titles:

• Use all legal_custom values as the default titles
• Look through the top of the text for each policy to see if there's an obvious title
  • Finding an automatic way of doing this would be cool but could take a while
  • Could just have a human do it

Method to get standardized legal means (once we decide on what those are):

• For legal_custom values where there's a clear corresponding standardized category, use that
• For the rest, someone will need to go through manually and decide

And in the future, the intake form can ask these two things separately.

[gregjd]

If this isn't done by the summer, this "finding an automatic way" method could be an interesting task for a summer fellow.

We can't label standardized legal means until we decide on what the categories will be.