Add missing admin_todos migration (091)

The admin_todos table is written by 8 worker handlers (and the new shared
create_admin_todo helper) but had NO CREATE migration anywhere, so every
fulfillment-task insert silently failed in environments without the table.
Define it with the exact column set the handlers use, plus status/priority/
order indexes and operator workflow columns (assigned_to, notes, completed_at).

Applied 076,085,086,088,089,090,091 to the dev DB (all idempotent); verified
admin_todos, esign_records, paper_filing_batches, compliance_orders.
fulfillment_status, and esign_records.signature_vector all exist and accept the
handler insert shape.

api/migrations/091_admin_todos.sql

@@ -0,0 +1,37 @@
+-- 091: admin_todos — operator fulfillment task queue.
+--
+-- Service handlers (npi_provider, mcs150_update, state_trucking, boc3_filing,
+-- hazmat_phmsa, mailbox_setup, carrier_closeout, ein_application, …) insert a
+-- row here whenever a filing needs human action. This table was referenced by
+-- the workers but never had a CREATE migration, so the inserts silently failed
+-- in any environment without the table. This migration defines it.
+--
+-- The shared helper scripts/workers/telegram_notify.create_admin_todo() and the
+-- inlined INSERTs all use the same column set:
+--   (title, category, priority, order_number, service_slug, description, data, status)
+
+CREATE TABLE IF NOT EXISTS admin_todos (
+    id              SERIAL PRIMARY KEY,
+    title           TEXT NOT NULL,
+    category        TEXT NOT NULL DEFAULT 'filing',   -- filing, provisioning, review, …
+    priority        TEXT NOT NULL DEFAULT 'normal',   -- low, normal, high, urgent
+    order_number    TEXT,                             -- e.g. CO-ABCD1234 (nullable for ad-hoc tasks)
+    service_slug    TEXT,                             -- which service generated this task
+    description     TEXT NOT NULL DEFAULT '',
+    data            JSONB NOT NULL DEFAULT '{}',      -- structured intake/context payload
+    status          TEXT NOT NULL DEFAULT 'pending'
+                    CHECK (status IN ('pending', 'in_progress', 'done', 'cancelled')),
+    assigned_to     TEXT,                             -- operator email/handle (optional)
+    notes           TEXT,                             -- operator working notes
+    created_at      TIMESTAMPTZ NOT NULL DEFAULT NOW(),
+    updated_at      TIMESTAMPTZ NOT NULL DEFAULT NOW(),
+    completed_at    TIMESTAMPTZ
+);
+
+CREATE INDEX IF NOT EXISTS idx_admin_todos_status   ON admin_todos(status) WHERE status IN ('pending', 'in_progress');
+CREATE INDEX IF NOT EXISTS idx_admin_todos_order    ON admin_todos(order_number);
+CREATE INDEX IF NOT EXISTS idx_admin_todos_priority ON admin_todos(priority);
+CREATE INDEX IF NOT EXISTS idx_admin_todos_created  ON admin_todos(created_at DESC);
+
+COMMENT ON TABLE admin_todos IS
+    'Operator fulfillment task queue; one row per filing that needs human action.';