Quite possible that it should!  I don't have a wide-enough view of the application to make that decision yet.

I think it's probably the first time something's been added to that interface that requires an org, so while it would be more accurate to have all policy_writers be org members it might also be wasteful to DB-create one for tests which don't, strictly speaking, care, especially as it's (currently) only a requirement when creating or editing detailed guides.