Treat neighbourhood as `city` when no city was parsed by libpostal

libpostal parses 100 Lancaster Dr Ne, Four Corners, OR, USA as:

> 100 Lancaster Dr Ne, Four Corners, OR, USA

Result:

{
  "house_number": "100",
  "road": "lancaster dr ne",
  "suburb": "four corners",
  "state": "or",
  "country": "usa"
}

The correct interpretation is that Four Corners should have been identified as a city instead of a neighbourhood.

Add logic to query ES with neighbourhood as city if no city was identified. This shouldn't happen at the parse layer because the neighbourhood may actually be intentional, for example:

> 30 w 26th st flatiron district

Result:

{
  "house_number": "30",
  "road": "w 26th st",
  "suburb": "flatiron district"
}

This logic should happen in the ES query logic so "Four Corners" would be queried for at the neighbourhood, locality, and localadmin layers.