Improve user checkpoints with structured AskUserQuestion

[hua7450]

Summary

Replaces vague "dump everything and ask open-ended question" checkpoints with structured AskUserQuestion calls — one decision at a time, with recommended options.

Changes

encode-policy-v2

• Phase 2 (Scope Review): Requirements now displayed grouped by tag. Overall scope asked first, then each program-specific complexity decision separately (provider rates, TANF approach, income variable gaps) with recommended defaults.

backdate-program

• Regulatory Checkpoint 1 (after research): Structured questions for proceed/Tier B-C items/source gaps
• Regulatory Checkpoint 2 (after audit): Structured questions for reference fixes and each formula fix category separately

fix-pr (full rewrite)

• Phase 0: Proper setup — file cleanup, PREFIX derivation, PR selection before posting mode
• Phase 1: Delegated context gathering with comment freshness detection (CURRENT/STALE-BUT-OPEN/POSSIBLY-FIXED/RESOLVED)
• Phase 2: Per-issue checkpoint with clear/ambiguous/research-needed classification, evidence extraction from review reports
• Phase 3: Proper agent blocks with subagent_type, dependency-ordered execution, fix plan on disk
• Phase 4: Verification agent, working_references.md cleanup, git pull --rebase before push, comment generated from actual results
• Phase 5: Summary
• Added: handoff table, error handling, context protection rules

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