i'll probably put this on github soon enough. however, what i went with for this was:

         my @split = map { s/^\[|\]$//m; $_ } split /\]\n[\S ]*\[|\n{2
+,}/, $text;

         my %match;
         for my $i (0 .. $#split) {
            my ($sec, $desc);
            ($match{PAGE}) = $split[$i] =~ /Pages? ([\d-]+)/ if (!defi
+ned($match{PAGE}));
            ($sec, $desc) = $split[$i] =~ m/^([A-Z]+):\s*(.*)/msg;
            $match{$sec} = $desc if ($sec and $desc);

            if (($match{ACTION} or $match{AGENCY}) and !$match{DESC}) 
+{
               $match{DESC} = $split[$i - 1];
            }
         }
[download]

there are other 'pages' so i might set a counter and after the first match do $match{PAGE . $count} = $split$i ... if i end up caring - i don't think i do.