Correct document sorting logic in the rulemakings documents list

[patphongs]

Summary

What we're after:
Correct the document sorting logic in the rulemaking documents list. Documents should be sorted first by doc_date. at level 1 with priority placed on certain doc categories, then asc within level 2. The legacy FOSERS had comparator logic (specifically references to Tier1Comparator) for the tie-break. The CMS solution here, will need to be implemented in the backend and the CMS logic removed.

Completion criteria

• Documents are sorted first by doc_date DESC level 1, with priorities for certain doc categories, asc within level 2
• CMS logic is removed, once we have replicated it on BE
• If multiple documents share the same doc_date, a deterministic tie-break rule is applied. [Investigate how level 2 tie breakers are currently implemented, make this consistent with old FOSERS logic]

[cnlucas]

Documents seem to already by sorted by doc_date in the sql, I think RM 2025-99 is out of order because it was pushed differently than the other documents.

Do we want to re-evaluate if we want it desc?