A document with lots of informative headings is easy to follow. Using more headings helps you break up the document into logical, understandable pieces. Informative headings are more specific and thus more helpful to the reader than are short headings that cover several pieces of information.
Questions make excellent headings.
Purpose and policy. Information and records available to the public and exempt from disclosure. Public access to information and records. It's often useful to start writing your document by developing the headings, structuring them to your readers' concerns. This approach can also reveal major groupings of information that you might want to identify with centered headings.