feat: implement institutional mandate resolver

README.md

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+# GovOPlaN Mandates
+
+<!-- govoplan-repository-type:start -->
+**Repository type:** module (domain).
+<!-- govoplan-repository-type:end -->
+
+`govoplan-mandates` owns effective-dated institutional competence: tasks,
+jurisdiction, responsibility, decision or signature authority, legal basis,
+evidence, conflicts, suspension, replacement, and retirement.
+
+Organizations owns structures and functions, IDM owns incumbency, Access owns
+application permissions, and Policy owns constraints. Mandates answers why an
+institution, unit, or function was competent to perform a governed action at a
+specific time.
+
+The module stores immutable mandate revisions and exposes the provider-neutral
+`mandates.resolver` capability. Consumers retain exact returned references and
+evidence instead of reading Mandates tables.
+
+See [docs/MANDATES_DOMAIN.md](docs/MANDATES_DOMAIN.md).