added new federal layers with empty geom

@kalbermattenm: please give it a quick look.

remarks:
This PR slightly modifies the way that topics certified with 'no data' content are listed in the pdf. Thus you have to add an entry 'emptytopics' in the config_pdf.yaml.in (app_config section) listing the topics of this kind:
 emptytopics: ['87','88','96','97','104'] - or whatever topics with no geometry you have.