feat: add governance evaluator and decision runner skeleton

plugins/reporting-governance/README.md

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+# Reporting Governance Plugin
+
+This package is the emerging package boundary for the reporting-governance mainline.
+
+Current purpose:
+
+- give the plugin a real package home
+- publish capability descriptors as package artifacts
+- fix boundaries between `core/`, `adapters/`, `storage/`, and reference implementations
+- prepare the next implementation round for evaluator / decision-runner extraction
+- provide a minimal package-level policy evaluator and decision runner skeleton that can be verified in isolation
+
+## Package skeleton
+
+```text
+plugins/reporting-governance/
+  package.json
+  README.md
+  capabilities/
+  docs/
+  examples/
+  src/
+    core/
+      index.mjs
+      policy-evaluator.mjs
+      decision-runner.mjs
+    adapters/
+    storage/
+    reference/
+    index.mjs
+  test/
+```
+
+## Boundary rules
+
+### `src/core/`
+Runtime-agnostic governance logic:
+
+- canonical event normalization
+- evidence building
+- policy evaluation
+- decision running
+- capability/profile compatibility
+
+### `src/adapters/`
+Runtime-facing adapter modules:
+
+- watchdog adapter
+- dispatcher adapter
+- bridge adapter
+- sender-binding adapter
+- orchestrator adapter
+
+These may initially wrap existing repo scripts while extraction is still in progress.
+
+### `src/storage/`
+Durable I/O contracts for governance artifacts:
+
+- events
+- evidence
+- queue items
+- spool artifacts
+- receipts
+- future decisions / audit manifests
+
+### `src/reference/`
+Reference runtime compositions and migration notes.
+
+**The watchdog reference runtime composition belongs here**, as a reference implementation for OpenClaw rather than as package core logic.
+
+## Current reference composition
+
+The current reference composition is the OpenClaw watchdog chain:
+
+```text
+watchdog -> queue -> dispatcher -> bridge -> sender binding -> acked|blocked|pending_external_send
+```
+
+Package-home documentation:
+
+- `src/reference/openclaw-watchdog-chain.md`
+- `capabilities/openclaw-watchdog-reference.json`
+
+Mainline background specs remain in:
+
+- `docs/specs/reporting-governance-capability-descriptor.md`
+- `docs/specs/reporting-governance-adapter-interface.md`
+- `docs/specs/reporting-governance-deployment-model.md`
+
+## Minimal evaluator / decision runner now included
+
+The current package now includes a small but runnable `core/` implementation:
+
+- `src/core/policy-evaluator.mjs`
+- `src/core/decision-runner.mjs`
+- `src/core/index.mjs`
+
+Current package-core responsibilities:
+
+- normalize evaluator facts from canonical event payload + evidence + local context
+- match policy-pack rules by trigger and structured conditions
+- produce canonical decision-model shaped decision objects
+- choose the highest-precedence decision when multiple rules match
+- convert a canonical decision into an execution plan, enforcement intent, and receipt skeleton
+- truthfully degrade unsupported enforcement paths based on the capability descriptor
+
+Still **runtime-adapter responsibility** at this stage:
+
+- intercepting real outgoing messages or status transitions inline
+- actually sending operator notices
+- acking final delivery to external channels
+- persisting decisions/receipts into a production decision store
+- installing schedulers / watchdog loops / bridge sender bindings
+
+This means `core/` now owns evaluation and planning semantics, while adapters still own actual enforcement side effects.
+
+## Not yet included
+
+This package still does **not** claim full implementation of:
+
+- generalized event normalization modules
+- generalized evidence builder modules
+- production decision persistence
+- complete rewrite / placeholder / review / status-downgrade adapter execution
+- non-watchdog full runtime governance interception
+
+It now provides the first package-mainline evaluator / decision-runner core, but the remaining enforcement surface is still intentionally honest about adapter gaps.