feat(governance): add inst_038 for mandatory pre-action-check enforcement
CRITICAL FRAMEWORK GAP - Prevents bypassing governance rules (CSP, boundaries, instruction conflicts) by making pre-action-check explicitly required before Edit/Write operations.
Root cause of CSP violation: pre-action-check.js exists and works (verified) but wasn't used. inst_038 enforces: 'Running pre-action-check for [file]' + execution before any file modification.
Validates: pressure check, instructions loaded, token checkpoints, CSP compliance, framework components.
Generic failure pattern addressed - affects all governance rule enforcement.
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