Toc re org

[brgrey]

This request introduces some significant aesthetic improvements to the TOC. Mainly, it does 5 things:

1. It places content-based <item> elements and their corresponding xsl:comments on the same line of code, thus removing the potential for confusion about which elements correspond to which comments
2. It gives the documentation consistent formatting with the intention of making it easier to read both to experienced encoders (and crucially, to new members of the DHQ team)
3. It clearly lays out conventions for formatting information in xsl:comments which relate to <item> elements
4. It adjusts and confirms the flow of information so that the document can be read from the top down as a set of instructions which then mirror the actions needed to be taken by the encoder as a document moves through the encoding process.
5. It adds some language to clarify editing the TOC should only be done after the creation of an appropriate article directory. (This change being noteworthy since working in the opposite order risks breaking the Internal Preview area of the production site)

These changes are made with the intention of decreasing encoder confusion about how to edit the TOC. By clarifying what types of information are necessary and where that information should go, encoders should be able to more easily navigate the necessarily significant comment section at the start of the file.

[juliaflanders]

This looks fine--I think we can go ahead and merge it in.