Initialize GovOPlaN module seed

docs/CERTIFICATES_DOMAIN_BOUNDARY.md

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+# Certificates Domain Boundary
+
+## Purpose
+
+Issuing, revoking, verifying, and archiving certificates, attestations, participation confirmations, permits, and eligibility statements.
+
+## Owns
+
+- certificate issuance records
+- revocation and verification state
+- attestation metadata
+- archive references
+- eligibility statements
+
+## Does Not Own
+
+- learning course execution
+- permit adjudication workflows
+- document binary storage
+
+## Integration Candidates
+
+- learning
+- cases
+- forms-runtime
+- files
+- portal
+- records
+
+## Seed State
+
+The current repository state is intentionally small:
+
+- module manifest and entry point
+- tenant-level permission definitions
+- manager and viewer role templates
+- documentation topic describing the module boundary
+- Gitea issue workflow templates
+- manifest contract test
+
+No runtime API, database model, migration, WebUI route, or navigation item is registered yet. The first implementation slice should preserve the boundary above and only add user-visible surfaces once the workflow model is clear.
+
+## First Implementation Slice
+
+Define certificate templates, issued certificate records, revocation state, and verification lookup contracts.