SNAP always_standard utility allowance parameter may model wrong concept

## Summary

The parameter `always_standard.yaml` (`gov/usda/snap/income/deductions/utility/always_standard.yaml`) may be modeling the wrong concept. As coded, when `true` it gives **all** households the Standard Utility Allowance (SUA) regardless of whether they have any utility expenses (`snap_utility_allowance_type.py:29`: `has_heating_cooling | always_sua`).

Currently only Colorado is `true` (from 2024-10-01). All other states are `false`.

## The Problem

There are three distinct real-world concepts being conflated:

| Concept | What it means | States |
|---------|--------------|--------|
| **Mandatory SUA** (FNS State Options Report) | Households WITH qualifying utility expenses must use SUA instead of actual costs | 48 states |
| **Heat and Eat** | State gives nominal energy assistance to trigger SUA eligibility for specific populations | ~13 states (CA, CT, DC, ME, MD, MA, MI, MT, NY, OR, PA, RI, WA) |
| **`always_standard` as coded** | ALL households get SUA regardless of any utility expenses | Possibly 0 states — no state truly does this universally |

## Colorado specifics

Colorado's Energy EBT program (CRS 26-2-307, effective 2024) targets SNAP households with elderly/disabled members not receiving LEAP — not all households universally. The current `true` value may be broader than the actual program.

## Questions to resolve

1. Should `always_standard` track "mandatory SUA" (48 states)? If so, most states should be `true`.
2. Should it track "heat and eat" programs (~13 states)? If so, many more states should be `true`.
3. Should it remain as coded (universal SUA for all households)? If so, Colorado's `true` may need to be scoped more narrowly.

## Sources

- [FNS State Options Report, 16th Edition (June 2024) — p.12](https://fns-prod.azureedge.us/sites/default/files/resource-files/snap-16th-state-options-report-june24.pdf#page=12)
- [FNS State Options Report, 17th Edition (Aug 2025) — p.24](https://fns-prod.azureedge.us/sites/default/files/resource-files/snap-stateOptionsReport-17edition-120925.pdf#page=24)
- [7 CFR 273.9(d)(6)(iii)](https://www.ecfr.gov/current/title-7/subtitle-B/chapter-II/subchapter-C/part-273/subpart-D/section-273.9)
- [Colorado CRS 26-2-307](https://law.justia.com/codes/colorado/title-26/article-2/part-3/section-26-2-307/)
- [Colorado Energy EBT regulations (9 CCR 2503-10-3.10.00)](https://www.law.cornell.edu/regulations/colorado/9-CCR-2503-10-3.10.00)

## Related

Discovered during review of PR #7850 (backdate SNAP constants).