Initialize GovOPlaN module seed

docs/FORMS_RUNTIME_DOMAIN_BOUNDARY.md

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+# Forms Runtime Domain Boundary
+
+## Purpose
+
+Runtime form submissions for validation, drafts, attachments, signatures, status tracking, and handoff to domain modules.
+
+## Owns
+
+- form submissions
+- draft state
+- runtime validation results
+- attachment references
+- signature state
+- handoff status
+
+## Does Not Own
+
+- form definition authoring
+- document storage
+- domain-specific adjudication
+
+## Integration Candidates
+
+- forms
+- files
+- approvals
+- workflow
+- portal
+
+## 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 submission, draft, validation, attachment, signature, status, and handoff contracts around existing form definitions.