Seed constitutional drafting backbone

proposals/README.md

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+# Proposals
+
+Proposal files preserve the public rationale for constitutional changes.
+
+Use one file per proposal. Prefer names that include a date and short subject,
+for example:
+
+```text
+2026-05-01-public-audit-trails.md
+```
+
+Each proposal should include:
+
+- summary
+- affected sections
+- proposed text
+- rationale
+- rights and safeguard review
+- objections and responses
+- ratification notes