Move LEGACY/locale_data to filesystem/database

The contents of LEGACY/locale_data, including our consent forms, are in memory python dictionaries. This makes it hard for non programmers to change, and impossible to deploy without redeploying the server. Ideally these items should be moved to file system/database, where they can be deployed/versioned independently of the server itself.

Start by examining the Python dictionaries under LEGACY/locale_data, including the consent forms, and trace where the server loads and uses them. Compare filesystem and database storage options; done means these items can be changed, deployed, and versioned independently of the server redeployment.

Written by the indexing model from the issue text.