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