Allow specific locales to stay open longer in submission

• right now, our two main phases for ST being open are SUBMIT and VETTING

  • The goal of VETTING phase is to resolve any errors, warnings and disputes

• for non-tc locales trying to get to basic (i.e. DDL), the VETTING phase doesn’t make a lot of sense as there isn’t data that needs to be vetted usually.

• for some tc locales which only have one organization contributing, the VETTING phase doesn’t make a lot of sense since there isn’t another organization which the tc organization vetter needs to resolve disputes with

Proposal:

1. locales that:

   1. are ddl or have only 1 tc org contributing

   2. weren’t at BASIC when vetting started (i.e. not in coverageLevels.txt) [easier]
      OR ALTERNATELY

   3. haven’t reached BASIC during vetting [harder to compute but see https://unicode-org.atlassian.net/browse/CLDR-16807 ]

2. … remain open for SUBMIT during vetting phase.

cho (Choctaw) for example would fall in either of these categories, and it would give it a further opportunity to contribute data.

The only downside I can think of is that users might not pay as much attention to errors if they are continuing to submit. But it seems like a very small downside.