Only create records on tests using them
Only create records on tests using them

The test or the draft phase legislation filter was using an entirely
different set of records, but was still creating the records used in the
open and past filter as well.

This made it hard to test the filter, since it returned records from
both sets.

Grouping the past and open filters together guarantees their records
won't be created in the phase draft test, and so we can test the exact
contents of the array.

consul/consul,usabi/consul_san_borondon,consul/consul,usabi/consul_san_borondon,usabi/consul_san_borondon,usabi/consul_san_borondon,consul/consul,consul/consul,consul/consul