I've just gotten back into keying, after a hiatus, and am glad I ran across this! I've never dealt with another project where names on an image are ignored, rather than keyed! I, too, would have keyed those 200+ names, as the idea of labeling an image "cover page" that actually has names on it to key is foreign to me, even bizarre!
"Use the “Cover page, Section header, etc” type for images that don’t contain any data, but might be interesting to look at because they provide some type of context for the image set. For instance, historical notes, affidavits, and so forth." Index pages do, indeed, have data, that data being names. How strange that this project goes against the general cardinal rule to never miss keying keyable information!