Genericize FCC TOS to model TOS

This pull request generalizes the FCC Terms of Service into a model terms of service immediately adaptable by other agencies.

When you open source something in software, you don't open source the purpose-built code, but rather, open source the abstract logic that solves a particular problem. This pull requests brings the document closer to that norm by analogy.

If I'm an agency looking to author a terms of service, I could just as easy go to fcc.gov and click the terms of service. This makes the document a resource, and something immediately available to agencies. 

It also encourages collaboration (I'm contributing to the "model" TOS, rather than "FCC's" TOS, which may become out of sync) and allows agency to vendor the template for their own use.