Comment 1 for bug 1897780

Related: bug 1411819 (allow individual libraries to block or permit renewals when patrons exceed the fine threshold).

I feel like the best approach would be to allow penalty blocks to be defined at the org unit level, instead of (or in addition to) globally in config.standing_penalty. I think this is basically the same as the "penalty event map" Mike Rylander suggested in the other bug?