list_government_documents

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List a government's adopted plan and budget documents. Each entry carries `covers` — every general-plan element that document answers for. A city that publishes one bound general plan satisfies all eight with the same PDF, so do not conclude an element is unpublished because no entry is named after it. `status` says what the entry offers: `converted` is searchable and readable; `superseded` is a retired edition, still stored but not searchable; and **`failed` means we hold this document and could not read it — it is not evidence the city published nothing.** Cite `source_url` in that case; it is always the city's own copy. An `availability` block appears ONLY when something is wrong with a document, and `availability.reason` says what. No `availability` key means there is nothing to report.