Issue
§6's extension points (operators, constraints) are code-distributable and static. They cannot encode decisions whose inputs change between requests — entity-graph state, federation-operational mode, dynamic naming.
Description
Concrete drivers: delegation budgets that narrow during operational incidents, federation-wide capacity envelopes, entity-reliability metrics over sliding windows.
§6.1.1 Determinism correctly rules these out of static metadata-policy — so the layer cannot live inside metadata_policy. Federations today are forced to fork the operator set or build the policy layer out-of-band, losing federation's signature guarantees.