feat(cloud): add targeted task governance foundation

openspec/changes/cloud-console-governance/proposal.md

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+## Why
+
+The Cloud Console can currently inspect distributed work but cannot direct
+that work to a selected Host or Device, govern who may submit it, or explain
+and control the AI spend generated by each Host.  Now that
+`cloud-planner-proxy` is planned to centralize the LLM call path, the next
+control-plane increment can make those operational decisions enforceable at
+the Cloud boundary instead of trusting every edge process to self-govern.
+
+## What Changes
+
+- Add Console task creation for authorized operators, with explicit target
+  selectors for a Host and optionally one of that Host's Devices.  A selected
+  target is a hard scheduling constraint and is never silently rerouted to a
+  different Host or Device.
+- Add persisted Cloud governance policies: user submission restrictions
+  (submission enablement and allowed Host/Device targets) and versioned
+  per-Host operational/AI-budget policies.  The API remains authoritative;
+  Console visibility is not an authorization boundary.
+- Let a Host retrieve its current policy through the authenticated outbound
+  protocol, with version-aware heartbeat synchronization and a safe cached
+  representation for local visibility.
+- Add a Host-scoped internal task-submission operation.  An authenticated
+  Host can create a task only for itself and, when specified, one of its own
+  enrolled Devices; it never receives general public `tasks:submit` power.
+- After `cloud-planner-proxy` is implemented and a Host uses its `cloud`
+  planner transport, record provider-reported token usage per Host/task/
+  attempt and enforce configured token budgets with atomic reservation and
+  settlement.  Direct-to-provider Hosts remain explicitly unmetered and
+  cannot be represented as hard-budget-enforced.
+- Extend the Console with task-creation, user-policy, Host-policy, and
+  per-Host AI-usage/budget views.  Existing user lifecycle management remains
+  role-gated and gains policy editing rather than a new custom-role system.
+
+## Capabilities
+
+### New Capabilities
+
+- `cloud-governance`: Durable, versioned user and Host policies that restrict
+  task submission/targets and define Host operational and AI-budget limits.
+- `host-scoped-task-submission`: Authenticated internal operation that lets a
+  Host submit tasks constrained to itself.
+- `cloud-ai-usage-governance`: Durable AI usage metering, budget reservations,
+  settlement, and non-secret reporting for Cloud-proxied planner calls.
+
+### Modified Capabilities
+
+- `cloud-console-ui`: add governed task creation and operational governance
+  views to the existing Cloud Console experience.  This capability is still
+  defined by active Console changes and will be reconciled before archive.
+- `platform-sdk`: extend public task submission/status and `CloudClient`
+  parity with explicit task targets and safe governance-facing responses.
+- `task-scheduler`: make explicit Host/Device target selectors part of task
+  constraints and enforce them during matching.
+- `host-agent-protocol`: return versioned Host policy through the outbound
+  protocol and add Host-self task submission while retaining host binding.
+- `cloud-planner-proxy`: enforce Host budget reservations and emit
+  provider-reported usage only after the proxy change is implemented.  This
+  capability is currently an active, unarchived change.
+- `agent-runtime`: carry provider-reported non-secret token usage alongside a
+  tool-call decision so the Cloud proxy can meter the call without changing
+  `AIPlanner` decision semantics.  This capability is also active and
+  unarchived.
+
+## Impact
+
+- `packages/cloud-platform/cloud`: governance and usage domain models,
+  repository port/SQLAlchemy implementation, Alembic migration, scheduler
+  matching, public/internal Pydantic contracts, policy-aware authorization,
+  and proxy metering.
+- `apps/cloud-api`: router composition and configuration only; all durable
+  policy and accounting behavior remains in the Cloud Platform package.
+- `apps/device-host-agent`: policy-aware client/heartbeat state and
+  self-targeted task submission; no inbound Cloud connection is introduced.
+- `cloud-console/`: task composer plus user/Host policy and AI-usage views.
+- Dependencies and rollout: implementation is blocked until
+  `cloud-planner-proxy` is completed, its migration is deployed, and affected
+  Hosts are using `AI_PLANNER_TRANSPORT=cloud`; it also follows completion of
+  the active Cloud Console user-authentication work.