feature request: legal action for transfer from person -> person

[DanielKispert]

Eco currently supports the following transfers of money:
government account -> person(s), which is a payment
person(s) -> government account, which is a tax
private/government account -> private/government account, which is a transfer

An action to send money from a person to another person is currently missing. If a citizen uses more than their personal bank account, the existing "transfer" action does not support tracking that wealth too, it can only be used to transfer an amount of currency from one specified account to another.
To properly support sending money from a citizen to another citizen, we need to do a workaround:

1. tax into a specified government account
2. pay from the government account for the receiving citizen
   we tried this workaround this WT run and our "common pot" government account always consumed more money than it took in, probably because of citizens spending money before getting it taxed. A new legal action that directly sends from person to person without needing this in-between step would be great.