Make falling back to default locale in public body listings optional

As the code stood, the list method in PublicBodyController would only
return results that had translations of the public body in the default
locale.  This has a variety of problems if you're viewing pages in the
non-default locale - for example, the "first letter" links wouldn't
bring up the public bodies that began with that letter in the current
locale, only those that began with it in the default locale.

Ideally, every public body would be translated into every available
locale for the site, but there are cases where deployers wish to have
public body listings also include those from the default locale, in
case there are untralsated public bodies:

  https://groups.google.com/d/msg/alaveteli-dev/zUY_USaAMAM/M7KTQ9RC5YUJ

This commit makes the default behaviour to look for public body
listings only in the current locale, but if the new configuration
option PUBLIC_BODY_LIST_FALLBACK_TO_DEFAULT_LOCALE is set, then public
body listings will be looked for in both the current locale and the
default locale.

Fixes #1000

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