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N2T-based test ARKs for non-EZID users

This is a much narrower version of the proposal I brought in last month, which was to expand the role of NAAN registry to record shoulders under the four non-institutional NAANs. We need agreement on how INCIPIT might proceed with N2T-based test ARKs that do not conflict with EZID test ARKs. A major benefit of the proposal would be to protect exclusive "test" shoulder access rights of both EZID and INCIPIT.

Proposed: With its oversight role for the NAAN namespace, this group agrees to reserve, under the 99999 NAAN,

• 1 shoulder for exclusive use of the INCIPIT service
• 1-3 "historical" shoulders for exclusive use of the EZID service

Some discussion:

1. A 99999 NAAN in ARKs found in the wild signifies a status of "test".
2. No organization owns or was meant to own the 99999 NAAN.
3. Historically, EZID has used 1-3 shoulders under the 99999 NAAN, taking advantage of these portions of the public/common space as if it had exclusive rights to them. This proposal would formally recognize those rights in the future.
4. This proposal would also grant similar rights to a test shoulder for INCIPIT.

The current proposal has no impact on the NAAN registry. The test shoulders reserved in this way would be recorded for now in a separate file. 

First draft policy statement on NAAN assignment and update.

I pulled some text out of the github repo's README.md file to create a new Policy.md file. The biggest change was to add a small section on update policy:

Update policy for NAAN curators is mostly about doing one's best to verify that the request is coming from a legitimate source that is authorized to represent the original NAAN-holding organization.

The biggest risk is a change to the organizational URL (resolver) for ARKs with that NAAN that rely on N2T, since such a change will affect their resolution. Things to watch out for are (a) mistaken requests and (b) spurious attempts to misdirect someone's ARKs (never happened yet). Things are not always obvious, for example, a request came in for a new organizational URL that, by itself, returned a 404 error; while it seemed like a mistake, and it still returns a 404 error, it is nonetheless a valid base URL for a local ARK resolver.