LP#2006971: Custom system penalties

LP#2006971: Custom system penalties

This development creates a set of Library Settings that a staff
member with appropriate permissions can use to set a custom value
for a stock penalty according to the following workflow:

-- Create a new penalty in Standing Penalties
-- Set the desired penalty threshold in Group Penalty Thresholds
-- Use the Library Setting to associate your new penalty with a
   stock system penalty and organizational unit context.

The custom penalty will be automatically applied in place of the
stock penalty at the specified org units, when the patrons'
account meets the penalty criteria.

System penalties that can be overridden:

 * PATRON_EXCEEDS_FINES
 * PATRON_EXCEEDS_OVERDUE_COUNT
 * PATRON_EXCEEDS_CHECKOUT_COUNT
 * PATRON_EXCEEDS_LOST_COUNT
 * PATRON_EXCEEDS_LONGOVERDUE_COUNT
 * PATRON_EXCEEDS_COLLECTIONS_WARNING
 * PATRON_IN_COLLECTIONS

Signed-off-by: Mike Rylander <mrylander@gmail.com>