It's not hedging - it's just saving space. In fact, it's extremely common for headlines to use the 'to' + infinitive structure to signal a future plan/ intention/ arrangement, simply because it takes up very little room. For example, 'BA to axe 1000 jobs' would be typical headline jargon for an article about the airline's plan to reduce its workforce. You're sure to find lots more examples like this in the course of your project. Well done for choosing the Guardian, by the way. A wise decision.