PREWAVE-BE-095 — Resolve Eligible Governance Participants for Governance Notifications #796

Problem context

src/notifications/services/governance-event-publisher.service.ts currently returns an empty array from getGovernanceParticipants(). Proposal-created, vote-reminder, vote-closed, and proposal-executed events can therefore have no recipients.

Technical scope

Define and implement the policy-backed recipient set for each governance notification. Use verified participation and eligibility records rather than broad user broadcasts. Separate active voters, eligible governance participants, proposal followers, and directly affected users where the event requires it. Respect channel preferences, opt-outs, and bounded fan-out.

Required tests

• Each governance event's eligibility matrix, including expired/ineligible participants.
• Deduplication, pagination/batch bounds, and preference enforcement.
• No accidental broadcast to all users.
• Stable results when participant records change during event publication.

Security and architecture constraints

• Contracts and finalized canonical events remain authoritative for protocol state.
• The API remains a projection/read and notification-delivery layer; it must not invent protocol outcomes.
• Fail closed on missing, stale, ambiguous, unauthorized, or incomplete state.
• Do not expose secrets, device tokens, email verification tokens, private evidence, or unnecessary personal data.
• Preserve strict typing, idempotency, privacy, observability redaction, and existing CI/security gates.

Acceptance criteria

• The identified placeholder or unsafe behavior is replaced by a production-quality implementation.
• Provider/recipient/ownership behavior is explicit and documented.
• Every required failure mode is covered by automated tests.
• No synthetic success, cross-user data exposure, or secret leakage remains in the affected path.
• The pull request links exactly this issue and maps evidence to every acceptance criterion.
• Exact-head required CI passes and independent human review is recorded.

Dependencies

• API PREWAVE-BE-018 — Converge Duplicate Notification Module Implementations #613 — canonical notification module wiring.
• API PREWAVE-BE-025 — Validate Optional Notification Channel Configuration Fail Closed #621 — notification channel configuration and preference enforcement.

Non-goals

Changing governance voting power, on-chain governance authority, or proposal execution.

Complexity and points

• Medium — 150 points

Candidate only. Activation remains maintainer-controlled; do not apply Stellar Wave as part of implementation.