feat: implement institutional governance and recovery architecture
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# GovOPlaN Workspace Codex Guide
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## Scope
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This repository coordinates the GovOPlaN workspace, release catalog, shared
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checks, development environment, and cross-repository automation. Business and
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platform behavior remains owned by the corresponding module repository.
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## Documentation Contract
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- Treat documentation as part of every behavior change. Update the owning module's manifest-driven `DocumentationTopic` contributions for each affected user and administrator workflow, setting, permission, limitation, and operational consequence.
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- Keep feature content in the owning module. The optional `govoplan-docs` module projects module contributions and must not import feature internals.
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- Every module manifest must provide a static user and administrator baseline, even when `documentation_providers` add configured-state details.
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- Run `tools/checks/check-manifest-shapes.py` after module behavior or manifest changes. Run `tools/checks/check-focused.sh` for cross-module changes.
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## Working Rules
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- Treat Gitea issues as the canonical backlog and state log.
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- Preserve optional module boundaries and use Core contracts or capabilities for integrations.
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- Prefer targeted checks before full workspace scans.
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- Do not start persistent development servers unless requested.
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