Initialize GovOPlaN module seed

docs/ISSUE_REPORTING_DOMAIN_BOUNDARY.md

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+# Issue Reporting Domain Boundary
+
+## Purpose
+
+Public or internal problem reporting for broken infrastructure, damaged rooms, IT outages, safety issues, accessibility issues, triage, and routing.
+
+## Owns
+
+- issue intake
+- problem category taxonomy
+- triage and routing facts
+- public reporter references
+- handoff targets
+
+## Does Not Own
+
+- internal service desk execution
+- legal case handling
+- asset lifecycle management
+
+## Integration Candidates
+
+- helpdesk
+- cases
+- assets
+- facilities
+- forms-runtime
+- portal
+- files
+- workflow
+
+## 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 intake submission, triage status, category, location, evidence, and handoff contracts to helpdesk, cases, assets, or facilities.